x-Transit

Car-like mobility. But without all those damn cars.

08 April 2007

Commentary: “Toward green mobility: the evolution of transport”,

Commentary: “Toward green mobility: the evolution of transport”, Jesse H. Ausubel, Cesare Marchetti and Perrin Meyer. European Review in May 1998, published by Cambridge University Press (UK) for the Academia Europaea.

I have just completed reading an excessively idiotic article on the future of transportation written by three highly intelligent, certainly well-meaning and otherwise well-informed authors, to which I would like to recommend your attention. The title of the piece is "Toward green mobility: the evolution of transport" and the identifying info on the authors and their references will be found at http://phe.rockefeller.edu/green_mobility/. I regret to put my point so harshly, but to my mind this once again provides evidence that high intelligence is no guarantee against idiocy.

Amid a certain number of pretty cogent observations taken from the transportation literature of the time (that is mainly the 80s and first half of the 90s) the authors do a good job in setting the stage for their long-term analysis, but then seem to lose their way in a most appalling manner. There they are, it's the mid-90s and they have set out to peer into a very long term future for sector. Technology and technological solutions? No problem, abundantly manifest. You will find in their pages all the usual drivel on fuel cells and Maglev and hypersonic transport that is the stuff of many technology heads wildest dreams. But what is missing from this groaning table of plenty? Here's a clue or two for you: CO2 -- no mentions. GHD -- none. Greenhouse gases -- none. Climate -- none. Warming -- none. Planet -- none. Ecology -- none.

Now why do I draw this sad misinformed disingenuous mess—and happily out dated -- to your attention this morning? First of all as a friendly challenge to any of you who find that my observations might be ungenerous or misinformed. (I'm always pleased to learn through my own mistakes.) But this kind of analysis, which given today's screamingly immediate problems (and hey! They were also evident a decade ago, so no excuses), takes a most unfortunate step away from the crush of reality when it takes out after a fifty year time horizon without any feel at all for the full state of play. It’s as if they take off for a long hike in the woods, but forget their shoes.

What is tragic in this --under the circumstances this and a lot of other things out there on the radar screen that are looking so complacently over the long term and assuring us that technology will save the day, is that it lulls us to sleep. Okay, one can (kind of) understand it when the miscreants are part of the groups that will profit each day from our diminished sense of urgency. But folks like IIASA and the Rockefeller Foundation. . . isn’t that a bit of a problem?

To conclude, I think it is really a useful drill to take the few minutes that are needed to read their dozen pages of text and three pages of references, if nothing else as a reminder of how far off many of us have been thinking about these issues in the past. As Hannah Arendt put it, the banality of . . . well if not quite evil, but what about a certain kind of hubris?

Reactions?

Eric Britton

18 March 2007

Sick Transit Chicago: Congestion Pricing: Overcoming Obstacles to Implementation

Sick Transit Chicago: Congestion Pricing: Overcoming Obstacles to Implementation

05 March 2007

Roads Are Too Important to Be Left to Governments

Roads Are Too Important to Be Left to Governments
September 26, 2006
Gabriel Roth

Billions of dollars and an overwhelming amount of time are wasted every year in traffic congestion. Might there be relief in sight? Earlier this year, former Transportation Secretary Norman Mineta announced a federal initiative to relieve transportation congestion, largely with the help of private fees and tolls. “Congestion is not a fact of life,” rightly declared Mr. Mineta, “We need a new approach, and we need it now.” One such approach would be to enable the market economy, on which we depend for most other goods and services, to also provide roads. Toll roads were privately supplied two hundred years ago on a large scale in both the U.S. and the UK. Their private provision today is even more practical because modern technology enables customers to pay for road use without tollbooths, and even without vehicles having to stop.

Services such as electricity, telecommunications and water supply are provided commercially in many parts of the country in response to demand from consumers; most of whom pay the costs associated with their choices, and expect to get what they pay for. In the past decade, the private sector has begun to develop express toll lanes in many parts of the country. In fact, ten years ago, the California Private Transportation Company provided, in the median of California’s State Route 91, the first “Express Toll Lanes” with variable tolls, electronically collected, designed to ensure congestion-free travel at all times.

California’s pioneering Express Toll Lanes have since been replicated on portions of publicly owned roads such as California’s Interstate 15, Minnesota’s Interstate 394, and Denver’s Interstate 25. They give consumers the choice of paying for faster travel on less congested roadways that reliably and predictably get them to their destinations on time. This holds true whether the journey involves picking up a child from day care on time or supplying a business with just-in-time materials delivery. The use of these toll lanes is increasing, especially by women.

The pace of privatization has quickened in recent years:

  • A private consortium led by CINTRA/Macquarie has paid the city of Chicago $1.83 billion to allow it to receive the Chicago Skyway tolls for 99 years, and is buying the State of Indiana’s toll road for $3.85 billion.
  • To relieve congestion on the Washington Beltway, the Virginia Department of Transportation has approved a proposal from Fluor Enterprises to add four HOT (High-Occupancy or Toll) lanes to a 14-mile segment of the Beltway at a cost of nearly a billion dollars. These lanes are to be financed by electronically collected tolls, varied to ensure congestion-free travel at all times.
  • The biggest private road investment proposed to date is $7.2 billion for the first major project of the Trans-Texas Corridor from north of Dallas to south of San Antonio.

The cities of London and Stockholm, under the control of socialist administrations, have drastically reduced traffic congestion in their centers by the use of modern tolling methods, and are dedicating surplus revenues to improve public transportation.

The diversion of surplus road use revenues to non-road purposes is not confined to socialist administrations. It is also taken for granted in the U.S. For example, in 2005 Congress voted to finance, out of monies paid for road use, Virginia’s proposed $4 billion 23-mile rail connection to Dulles International Airport, even if that project were not to meet the relevant federal standards, and even though superior service with express buses could be provided at a third of the cost. Virginia’s financial contribution to this wasteful project is to come from increased tolls on the parallel Dulles Toll Road, which was built to serve, and continues to serve, non-airport traffic.

Road funding has been mismanaged by politicians long enough. The inadequacies of politically inspired projects such as Boston’s $14.6 billion “Big Dig” are now apparent to all. Roads are too important to be left to the vicissitudes of politics. The time has come to unleash the power of the private sector to deliver to road users the innovation, cost savings, quality and choice we take for granted in telecommunications and other services.


Gabriel Roth is a transport and privatization consultant and a research fellow at the Independent Institute. He is the editor of the new book, Street Smart: Competition, Entrepreneurship, and the Future of Roads.

27 January 2007

A Ladder of Citizen Participation

Editor’s note: Thanks for Chris Bradshaw for his timely heads-up on this, which relates closely to the thinking behind our New Mobility Ladder in the context of our eventual collaboration with the Clinton Climate Initiative. Stay tuned.

- Sherry R Arnstein


1. Citizen participation is citizen power

1.1. Empty Refusal Versus Benefit

2. Types of participation and "nonparticipation"

2.1. Limitations of the Typology

3. Characteristics and illustrations

3.1. Manipulation

3.2. Therapy

3.3. Informing

3.4. Consultation

3.5. Placation

3.6. Partnership

3.7. Delegated Power

3.8. Citizen Control

Note

Originally published as Arnstein, Sherry R. "A Ladder of Citizen Participation," JAIP, Vol. 35, No. 4, July 1969, pp. 216-224. I do not claim any copyrights.

Webmasters comment, February 2006.

This article has proved quite popular since I put it online in November 2004, there were over 1000 requests for the text just this January. I think that's great and welcome any comments you have, especially about success stories about giving power to communities in making decisions for themselves. You can contact me by visiting our old architecture site and clicking on 'contact'.

This article is about power structures in society and how they interact. Specifically it is a guide to seeing who has power when important decisions are being made. It is quite old, but never-the-less of great value to anyone interested in issues of citizen participation. The concepts discussed in this article about 1960's America apply to any hierarchical society but are still mostly unknown, unacknowledged or ignored by many people around the world. Most distressing is that even people who have the job of representing citizens views seem largely unaware, or even dismissive of these principles. Many planners, architects, politicians, bosses, project leaders and power-holder still dress all variety of manipulations up as 'participation in the process', 'citizen consultation' and other shades of technobable.

This article was reprinted in "The City Reader" (second edition) edited by Richard T. Gates and Frederic Stout, 1996, Routledge Press. Their editors' introduction is well worth reading.

Please copy and re-distribute this article. Let's work to help people understand the difference between 'citizen control' and 'manipulation'. If you're reading this then I assume you are interested in empowering people to take charge of their lives and their surrounding. I salute you for this work.

1. Citizen participation is citizen power

Because the question has been a bone of political contention, most of the answers have been purposely buried in innocuous euphemisms like "self-help" or "citizen involvement." Still others have been embellished with misleading rhetoric like "absolute control" which is something no one - including the President of the United States - has or can have. Between understated euphemisms and exacerbated rhetoric, even scholars have found it difficult to follow the controversy. To the headline reading public, it is simply bewildering.

My answer to the critical what question is simply that citizen participation is a categorical term for citizen power. It is the redistribution of power that enables the have-not citizens, presently excluded from the political and economic processes, to be deliberately included in the future. It is the strategy by which the have-nots join in determining how information is shared, goals and policies are set, tax resources are allocated, programs are operated, and benefits like contracts and patronage are parceled out. In short, it is the means by which they can induce significant social reform which enables them to share in the benefits of the affluent society.

1.1. Empty Refusal Versus Benefit

There is a critical difference between going through the empty ritual of participation and having the real power needed to affect the outcome of the process. This difference is brilliantly capsulized in a poster painted last spring [1968] by the French students to explain the student-worker rebellion. (See Figure 1.) The poster highlights the fundamental point that participation without redistribution of power is an empty and frustrating process for the powerless. It allows the powerholders to claim that all sides were considered, but makes it possible for only some of those sides to benefit. It maintains the status quo. Essentially, it is what has been happening in most of the 1,000 Comm-unity Action Programs, and what promises to be repea-ted in the vast majority of the 150 Model Cities programs.

2. Types of participation and "nonparticipation"

A typology of eight levels of participation may help in analysis of this confused issue. For illustrative pur-poses the eight types are arranged in a ladder pattern with each rung corres-ponding to the extent of citizens' power in deter-mining the end product. (See Figure.)

Figure Eight rungs on the ladder of citizen participation


The bottom rungs of the ladder are (1) Manipulation and (2) Therapy. These two rungs describe levels of "non-participation" that have been contrived by some to substitute for genuine participation. Their real objective is not to enable people to participate in planning or conducting programs, but to enable powerholders to "educate" or "cure" the participants.

Rungs 3 and 4 progress to levels of "tokenism" that allow the have-nots to hear and to have a voice: (3) Informing and (4) Consultation. When they are proffered by powerholders as the total extent of participation, citizens may indeed hear and be heard. But under these conditions they lack the power to insure that their views will be heeded by the powerful. When participation is restricted to these levels, there is no follow-through, no "muscle," hence no assurance of changing the status quo.

Rung (5) Placation is simply a higher level tokenism because the ground rules allow have-nots to advise, but retain for the powerholders the continued right to decide.

Further up the ladder are levels of citizen power with increasing degrees of decision-making clout. Citizens can enter into a (6) Partnership that enables them to negotiate and engage in trade-offs with traditional power holders.

At the topmost rungs, (7) Delegated Power and (8) Citizen Control, have-not citizens obtain the majority of decision-making seats, or full managerial power.

Obviously, the eight-rung ladder is a simplification, but it helps to illustrate the point that so many have missed - that there are significant gradations of citizen participation. Knowing these gradations makes it possible to cut through the hyperbole to understand the increasingly strident demands for participation from the have-nots as well as the gamut of confusing responses from the powerholders.

Though the typology uses examples from federal programs such as urban renewal, anti-poverty, and Model Cities, it could just as easily be illustrated in the church, currently facing demands for power from priests and laymen who seek to change its mission; colleges and universities which in some cases have become literal battlegrounds over the issue of student power; or public schools, city halls, and police departments (or big business which is likely to be next on the expanding list of targets). The underlying issues are essentially the same - "nobodies" in several arenas are trying to become "somebodies" with enough power to make the target institutions responsive to their views, aspirations, and needs.

2.1. Limitations of the Typology

The ladder juxtaposes powerless citizens with the powerful in order to highlight the fundamental divisions between them. In actuality, neither the have-nots nor the powerholders are homogeneous blocs. Each group encompasses a host of divergent points of view, significant cleavages, competing vested interests, and splintered subgroups. The justification for using such simplistic abstractions is that in most cases the have-nots really do perceive the powerful as a monolithic "system," and powerholders actually do view the have-nots as a sea of "those people," with little comprehension of the class and caste differences among them.

It should be noted that the typology does not include an analysis of the most significant roadblocks to achieving genuine levels of participation. These roadblocks lie on both sides of the simplistic fence. On the powerholders' side, they include racism, paternalism, and resistance to power redistribution. On the have-nots' side, they include inadequacies of the poor community's political socioeconomic infrastructure and knowledge-base, plus difficulties of organizing a representative and accountable citizens' group in the face of futility, alienation, and distrust.

Another caution about the eight separate rungs on the ladder: In the real world of people and programs, there might be 150 rungs with less sharp and "pure" distinctions among them. Furthermore, some of the characteristics used to illustrate each of the eight types might be applicable to other rungs. For example, employment of the have-nots in a program or on a planning staff could occur at any of the eight rungs and could represent either a legitimate or illegitimate characteristic of citizen participation. Depending on their motives, powerholders can hire poor people to co-opt them, to placate them, or to utilize the have-nots' special skills and insights. Some mayors, in private, actually boast of their strategy in hiring militant black leaders to muzzle them while destroying their credibility in the black community.

3. Characteristics and illustrations

It is in this context of power and powerlessness that the characteristics of the eight rungs are illustrated by examples from current federal social programs.

3.1. Manipulation

In the name of citizen participation, people are placed on rubberstamp advisory committees or advisory boards for the express purpose of "educating" them or engineering their support. Instead of genuine citizen participation, the bottom rung of the ladder signifies the distortion of participation into a public relations vehicle by powerholders.

This illusory form of "participation" initially came into vogue with urban renewal when the socially elite were invited by city housing officials to serve on Citizen Advisory Committees (CACs). Another target of manipulation were the CAC subcommittees on minority groups, which in theory were to protect the rights of Negroes in the renewal program. In practice, these sub-committees, like their parent CACs, functioned mostly as letterheads, trotted forward at appropriate times to promote urban renewal plans (in recent years known as Negro removal plans).

At meetings of the Citizen Advisory Committees, it was the officials who educated, persuaded, and advised the citizens, not the reverse. Federal guidelines for the renewal programs legitimized the manipulative agenda by emphasizing the terms "information-gathering," public relations," and "support" as the explicit functions of the committees.

This style of nonparticipation has since been applied to other programs encompassing the poor. Examples of this are seen in Community Action Agencies (CAAs) which have created structures called "neighborhood councils" or "neighborhood advisory groups." These bodies frequently have no legitimate function or power. The CAAs use them to "prove" that "grassroots people" are involved in the program. But the program may not have been discussed with "the people." Or it may have been described at a meeting in the most general terms; "We need your signatures on this proposal for a multi-service center which will house, under one roof, doctors from the health department, workers from the welfare department, and specialists from the employment service."

The signatories are not informed that the $2 million-per-year center will only refer residents to the same old waiting lines at the same old agencies across town. No one is asked if such a referral center is really needed in his neighborhood. No one realizes that the contractor for the building is the mayor's brother-in-law, or that the new director of the center will be the same old community organization specialist from the urban renewal agency.

After signing their names, the proud grass-rooters dutifully spread the word that they have "participated" in bringing a new and wonderful center to the neighborhood to provide people with drastically needed jobs and health and welfare services. Only after the ribbon-cutting ceremony do the members of the neighborhood council realize that they didn't ask the important questions, and that they had no technical advisors of their own to help them grasp the fine legal print. The new center, which is open 9 to 5 on weekdays only, actually adds to their problems. Now the old agencies across town won't talk with them unless they have a pink paper slip to prove that they have been referred by "their" shiny new neighborhood center.

Unfortunately, this chicanery is not a unique example. Instead it is almost typical of what has been perpetrated in the name of high-sounding rhetoric like "grassroots participation." This sham lies at the heart of the deep-seated exasperation and hostility of the have-nots toward the powerholders.

One hopeful note is that, having been so grossly affronted, some citizens have learned the Mickey Mouse game, and now they too know how to play. As a result of this knowledge, they are demanding genuine levels of participation to assure them that public programs are relevant to their needs and responsive to their priorities.

3.2. Therapy

In some respects group therapy, masked as citizen participation, should be on the lowest rung of the ladder because it is both dishonest and arrogant. Its administrators - mental health experts from social workers to psychiatrists - assume that powerlessness is synonymous with mental illness. On this assumption, under a masquerade of involving citizens in planning, the experts subject the citizens to clinical group therapy. What makes this form of "participation" so invidious is that citizens are engaged in extensive activity, but the focus of it is on curing them of their "pathology" rather than changing the racism and victimization that create their "pathologies."

Consider an incident that occurred in Pennsylvania less than one year ago. When a father took his seriously ill baby to the emergency clinic of a local hospital, a young resident physician on duty instructed him to take the baby home and feed it sugar water. The baby died that afternoon of pneumonia and dehydration. The overwrought father complained to the board of the local Community Action Agency. Instead of launching an investigation of the hospital to determine what changes would prevent similar deaths or other forms of malpractice, the board invited the father to attend the CAA's (therapy) child-care sessions for parents, and promised him that someone would "telephone the hospital director to see that it never happens again."

Less dramatic, but more common examples of therapy, masquerading as citizen participation, may be seen in public housing programs where tenant groups are used as vehicles for promoting control-your-child or cleanup campaigns. The tenants are brought together to help them "adjust their values and attitudes to those of the larger society." Under these ground rules, they are diverted from dealing with such important matters as: arbitrary evictions; segregation of the housing project; or why is there a three-month time lapse to get a broken window replaced in winter.

The complexity of the concept of mental illness in our time can be seen in the experiences of student/civil rights workers facing guns, whips, and other forms of terror in the South. They needed the help of socially attuned psychiatrists to deal with their fears and to avoid paranoia.

3.3. Informing

Informing citizens of their rights, responsibilities, and options can be the most important first step toward legitimate citizen participation. However, too frequently the emphasis is placed on a one-way flow of information - from officials to citizens - with no channel provided for feedback and no power for negotiation. Under these conditions, particularly when information is provided at a late stage in planning, people have little opportunity to influence the program designed "for their benefit." The most frequent tools used for such one-way communication are the news media, pamphlets, posters, and responses to inquiries.

Meetings can also be turned into vehicles for one-way communication by the simple device of providing superficial information, discouraging questions, or giving irrelevant answers. At a recent Model Cities citizen planning meeting in Providence, Rhode Island, the topic was "tot-lots." A group of elected citizen representatives, almost all of whom were attending three to five meetings a week, devoted an hour to a discussion of the placement of six tot-lots. The neighborhood is half black, half white. Several of the black representatives noted that four tot-lots were proposed for the white district and only two for the black. The city official responded with a lengthy, highly technical explanation about costs per square foot and available property. It was clear that most of the residents did not understand his explanation. And it was clear to observers from the Office of Economic Opportunity that other options did exist which, considering available funds would have brought about a more equitable distribution of facilities. Intimidated by futility, legalistic jargon, and prestige of the official, the citizens accepted the "information" and endorsed the agency's proposal to place four lots in the white neighborhood.

3.4. Consultation

Inviting citizens' opinions, like informing them, can be a legitimate step toward their full participation. But if consulting them is not combined with other modes of participation, this rung of the ladder is still a sham since it offers no assurance that citizen concerns and ideas will be taken into account. The most frequent methods used for consulting people are attitude surveys, neighborhood meetings, and public hearings.

When powerholders restrict the input of citizens' ideas solely to this level, participation remains just a window-dressing ritual. People are primarily perceived as statistical abstractions, and participation is measured by how many come to meetings, take brochures home, or answer a questionnaire. What citizens achieve in all this activity is that they have "participated in participation." And what powerholders achieve is the evidence that they have gone through the required motions of involving "those people."

Attitude surveys have become a particular bone of contention in ghetto neighborhoods. Residents are increasingly unhappy about the number of times per week they are surveyed about their problems and hopes. As one woman put it: "Nothing ever happens with those damned questions, except the surveyor gets $3 an hour, and my washing doesn't get done that day." In some communities, residents are so annoyed that they are demanding a fee for research interviews.

Attitude surveys are not very valid indicators of community opinion when used without other input from citizens. Survey after survey (paid for out of anti-poverty funds) has "documented" that poor housewives most want tot-lots in their neighborhood where young children can play safely. But most of the women answered these questionnaires without knowing what their options were. They assumed that if they asked for something small, they might just get something useful in the neighborhood. Had the mothers known that a free prepaid health insurance plan was a possible option, they might not have put tot-lots so high on their wish lists.

A classic misuse of the consultation rung occurred at a New Haven, Connecticut, community meeting held to consult citizens on a proposed Model Cities grant. James V. Cunningham, in an unpublished report to the Ford Foundation, described the crowd as large and mostly hostile:

Members of The Hill Parents Association demanded to know why residents had not participated in drawing up the proposal. CAA director Spitz explained that it was merely a proposal for seeking Federal planning funds -that once funds were obtained, residents would be deeply involved in the planning. An outside observer who sat in the audience described the meeting this way: "Spitz and Mel Adams ran the meeting on their own. No representatives of a Hill group moderated or even sat on the stage. Spitz told the 300 residents that this huge meeting was an example of 'participation in planning.' To prove this, since there was a lot of dissatisfaction in the audience, he called for a 'vote' on each component of the proposal. The vote took this form: 'Can I see the hands of all those in favor of a health clinic? All those opposed?' It was a little like asking who favors motherhood."

It was a combination of the deep suspicion aroused at this meeting and a long history of similar forms of "window-dressing participation" that led New Haven residents to demand control of the program.

By way of contrast, it is useful to look at Denver where technicians learned that even the best intentioned among them are often unfamiliar with, and even insensitive to, the problems and aspirations of the poor. The technical director of the Model Cities program has described the way professional planners assumed that the residents, victimized by high-priced local storekeepers, "badly needed consumer education." The residents, on the other hand, pointed out that the local store-keepers performed a valuable function. Although they overcharged, they also gave credit, offered advice, and frequently were the only neighborhood place to cash welfare or salary checks. As a result of this consultation, technicians and residents agreed to substitute the creation of needed credit institutions in the neighborhood for a consumer education pro-gram.

3.5. Placation

It is at this level that citizens begin to have some degree of influence though tokenism is still apparent. An example of placation strategy is to place a few hand-picked "worthy" poor on boards of Community Action Agencies or on public bodies like the board of education, police commission, or housing authority. If they are not accountable to a constituency in the community and if the traditional power elite hold the majority of seats, the have-nots can be easily outvoted and outfoxed. Another example is the Model Cities advisory and planning committees. They allow citizens to advise or plan ad infinitum but retain for powerholders the right to judge the legitimacy or feasibility of the advice. The degree to which citizens are actually placated, of course, depends largely on two factors: the quality of technical assistance they have in articulating their priorities; and the extent to which the community has been organized to press for those priorities.

It is not surprising that the level of citizen participation in the vast majority of Model Cities programs is at the placation rung of the ladder or below. Policy-makers at the Department of Housing and Urban Development (HUD) were determined to return the genie of citizen power to the bottle from which it had escaped (in a few cities) as a result of the provision stipulating "maximum feasible participation" in poverty programs. Therefore, HUD channeled its physical-social-economic rejuvenation approach for blighted neighborhoods through city hall. It drafted legislation requiring that all Model Cities' money flow to a local City Demonstration Agency (CDA) through the elected city council. As enacted by Congress, this gave local city councils final veto power over planning and programming and ruled out any direct funding relationship between community groups and HUD.

HUD required the CDAs to create coalition, policy-making boards that would include necessary local powerholders to create a comprehensive physical-social plan during the first year. The plan was to be carried out in a subsequent five-year action phase. HUD, unlike OEO, did not require that have-not citizens be included on the CDA decision-making boards. HUD's Performance Standards for Citizen Participation only demanded that "citizens have clear and direct access to the decision-making process."

Accordingly, the CDAs structured their policy-making boards to include some combination of elected officials; school representatives; housing, health, and welfare officials; employment and police department representatives; and various civic, labor, and business leaders. Some CDAs included citizens from the neighborhood. Many mayors correctly interpreted the HUD provision for "access to the decision-making process" as the escape hatch they sought to relegate citizens to the traditional advisory role.

Most CDAs created residents' advisory committees. An alarmingly significant number created citizens' policy boards and citizens' policy committees which are totally misnamed as they have either no policy-making function or only a very limited authority. Almost every CDA created about a dozen planning committees or task forces on functional lines: health, welfare, education, housing, and unemployment. In most cases, have-not citizens were invited to serve on these committees along with technicians from relevant public agencies. Some CDAs, on the other hand, structured planning committees of technicians and parallel committees of citizens.

In most Model Cities programs, endless time has been spent fashioning complicated board, committee, and task force structures for the planning year. But the rights and responsibilities of the various elements of those structures are not defined and are ambiguous. Such ambiguity is likely to cause considerable conflict at the end of the one-year planning process. For at this point, citizens may realize that they have once again extensively "participated" but have not profited beyond the extent the powerholders decide to placate them.

Results of a staff study (conducted in the summer of 1968 before the second round of seventy-five planning grants were awarded) were released in a December 1968 HUD bulletin. Though this public document uses much more delicate and diplomatic language, it attests to the already cited criticisms of non-policy-making policy boards and ambiguous complicated structures, in addition to the following findings:

  1. Most CDAs did not negotiate citizen participation requirements with residents.
  2. Citizens, drawing on past negative experiences with local powerholders, were extremely suspicious of this new panacea program. They were legitimately distrustful of city hall's motives.
  3. Most CDAs were not working with citizens' groups that were genuinely representative of model neighborhoods and account-able to neighborhood constituencies. As in so many of the poverty programs, those who were involved were more representative of the upwardly mobile working-class. Thus their acquiescence to plans prepared by city agencies was not likely to reflect the views of the unemployed, the young, the more militant residents, and the hard-core poor.
  4. Residents who were participating in as many as three to five meetings per week were unaware of their minimum rights, responsibilities, and the options available to them under the program. For example, they did not realize that they were not required to accept technical help from city technicians they distrusted.
  5. Most of the technical assistance provided by CDAs and city agencies was of third-rate quality, paternalistic, and condescending. Agency technicians did not suggest innovative options. They reacted bureaucratically when the residents pressed for innovative approaches. The vested interests of the old-line city agencies were a major - albeit hidden - agenda.
  6. Most CDAs were not engaged in planning that was comprehensive enough to expose and deal with the roots of urban decay. They engaged in "meetingitis" and were supporting strategies that resulted in "projectitis," the outcome of which was a "laundry list" of traditional pro-grams to be conducted by traditional agencies in the traditional manner under which slums emerged in the first place.
  7. Residents were not getting enough information from CDAs to enable them to review CDA developed plans or to initiate plans of their own as required by HUD. At best, they were getting superficial information. At worst, they were not even getting copies of official HUD materials.
  8. Most residents were unaware of their rights to be reimbursed for expenses incurred because of participation - babysitting, trans-portation costs, and so on. The training of residents, which would enable them to under-stand the labyrinth of the federal-state-city systems and networks of subsystems, was an item that most CDAs did not even consider.

These findings led to a new public interpretation of HUD's approach to citizen participation. Though the requirements for the seventy-five "second-round" Model City grantees were not changed, HUD's twenty-seven page technical bulletin on citizen participation repeatedly advocated that cities share power with residents. It also urged CDAs to experiment with subcontracts under which the residents' groups could hire their own trusted technicians.

A more recent evaluation was circulated in February 1969 by OSTI, a private firm that entered into a contract with OEO to provide technical assistance and training to citizens involved in Model Cities programs in the north-east region of the country. OSTI's report to OEO corroborates the earlier study. In addition it states:

In practically no Model Cities structure does citizen participation mean truly shared decision-making, such that citizens might view them-selves as "the partners in this program. ..."

In general, citizens are finding it impossible to have a significant impact on the comprehensive planning which is going on. In most cases the staff planners of the CDA and the planners of existing agencies are carrying out the actual planning with citizens having a peripheral role of watchdog and, ultimately, the "rubber stamp" of the plan generated. In cases where citizens have the direct responsibility for generating program plans, the time period allowed and the independent technical resources being made available to them are not adequate to allow them to do anything more than generate very traditional approaches to the problems they are attempting to solve.

In general, little or no thought has been given to the means of insuring continued citizen participation during the stage of implementation. In most cases, traditional agencies are envisaged as the implementers of Model Cities programs and few mechanisms have been developed for encouraging organizational change or change in the method of program delivery within these agencies or for insuring that citizens will have some influence over these agencies as they implement Model Cities programs ... By and large, people are once again being planned for. In most situations the major planning decisions are being made by CDA staff and approved in a formalistic way by policy boards.

3.6. Partnership

At this rung of the ladder, power is in fact redistributed through negotiation between citizens and powerholders. They agree to share planning and decision-making responsibilities through such structures as joint policy boards, planning committees and mechanisms for resolving impasses. After the groundrules have been established through some form of give-and-take, they are not subject to unilateral change.

Partnership can work most effectively when there is an organized power-base in the community to which the citizen leaders are account-able; when the citizens group has the financial resources to pay its leaders reasonable honoraria for their time-consuming efforts; and when the group has the resources to hire (and fire) its own technicians, lawyers, and community organizers. With these ingredients, citizens have some genuine bargaining influence over the outcome of the plan (as long as both parties find it useful to maintain the partnership). One community leader described it "like coming to city hall with hat on head instead of in hand."

In the Model Cities program only about fifteen of the so-called first generation of seventy-five cities have reached some significant degree of power-sharing with residents. In all but one of those cities, it was angry citizen demands, rather than city initiative, that led to the negotiated sharing of power. The negotiations were triggered by citizens who had been enraged by previous forms of alleged participation. They were both angry and sophisticated enough to refuse to be "conned" again. They threatened to oppose the awarding of a planning grant to the city. They sent delegations to HUD in Washington. They used abrasive language. Negotiation took place under a cloud of suspicion and rancor.

In most cases where power has come to be shared it was taken by the citizens, not given by the city. There is nothing new about that process. Since those who have power normally want to hang onto it, historically it has had to be wrested by the powerless rather than proffered by the powerful.

Such a working partnership was negotiated by the residents in the Philadelphia model neighborhood. Like most applicants for a Model Cities grant, Philadelphia wrote its more than 400 page application and waved it at a hastily called meeting of community leaders. When those present were asked for an endorsement, they angrily protested the city's failure to consult them on preparation of the extensive application. A community spokesman threatened to mobilize a neighborhood protest against the application unless the city agreed to give the citizens a couple of weeks to review the application and recommend changes. The officials agreed.

At their next meeting, citizens handed the city officials a substitute citizen participation section that changed the groundrules from a weak citizens' advisory role to a strong shared power agreement. Philadelphia's application to HUD included the citizens' substitution word for word. (It also included a new citizen prepared introductory chapter that changed the city's description of the model neighborhood from a paternalistic description of problems to a realistic analysis of its strengths, weaknesses, and potentials.) Consequently, the proposed policy-making committee of the Philadelphia CDA was revamped to give five our of eleven seats to the residents' organization, which is called the Area Wide Council (AWC). The AWC obtained a subcontract from the CDA for more than $20,000 per month, which it used to maintain the neighborhood organization, to pay citizen leaders $7 per meeting for their planning services, and to pay the salaries of a staff of community organizers, planners, and other technicians. AWC has the power to initiate plans of its own, to engage in joint planning with CDA committees, and to review plans initiated by city agencies. It has a veto power in that no plans may be submitted by the CDA to the city council until they have been reviewed, and any differences of opinion have been successfully negotiated with the AWC. Representatives of the AWC (which is a federation of neighborhood organizations grouped into sixteen neighbor-hood "hubs") may attend all meetings of CDA task forces, planning committees, or sub-committees.

Though the city council has final veto power over the plan (by federal law), the AWC believes it has a neighborhood constituency that is strong enough to negotiate any eleventh-hour objections the city council might raise when it considers such AWC proposed innovations as an AWC Land Bank, an AWC Economic Development Corporation, and an experimental income maintenance program for 900 poor families.

3.7. Delegated Power

Negotiations between citizens and public officials can also result in citizens achieving dominant decision-making authority over a particular plan or program. Model City policy boards or CAA delegate agencies on which citizens have a clear majority of seats and genuine specified powers are typical examples. At this level, the ladder has been scaled to the point where citizens hold the significant cards to assure accountability of the program to them. To resolve differences, powerholders need to start the bargaining process rather than respond to pressure from the other end.

Such a dominant decision-making role has been attained by residents in a handful of Model Cities including Cambridge, Massachusetts; Dayton, and Columbus, Ohio; Minneapolis, Minnesota; St. Louis, Missouri; Hartford and New Haven, Connecticut; and Oakland, California.

In New Haven, residents of the Hill neighborhood have created a corporation that has been delegated the power to prepare the entire Model Cities plan. The city, which received a $117,000 planning grant from HUD, has subcontracted $110,000 of it to the neighborhood corporation to hire its own planning staff and consultants. The Hill Neighborhood Corporation has eleven representatives on the twenty-one-member CDA board which assures it a majority voice when its proposed plan is reviewed by the CDA.

Another model of delegated power is separate and parallel groups of citizens and power-holders, with provision for citizen veto if differences of opinion cannot be resolved through negotiation. This is a particularly interesting coexistence model for hostile citizen groups too embittered toward city hall - as a result of past "collaborative efforts" - to engage in joint planning.

Since all Model Cities programs require approval by the city council before HUD will fund them, city councils have final veto powers even when citizens have the majority of seats on the CDA Board. In Richmond, California, the city council agreed to a citizens' counter-veto, but the details of that agreement are ambiguous and have not been tested.

Various delegated power arrangements are also emerging in the Community Action Program as a result of demands from the neighborhoods and OEO's most recent instruction guidelines which urged CAAs "to exceed (the) basic requirements" for resident participation. In some cities, CAAs have issued subcontracts to resident dominated groups to plan and/or operate one or more decentralized neighborhood program components like a multipurpose service center or a Headstart program. These contracts usually include an agreed upon line-by-line budget and program specifications. They also usually include a specific statement of the significant powers that have been delegated, for example: policy-making; hiring and firing; issuing subcontracts for building, buying, or leasing. (Some of the subcontracts are so broad that they verge on models for citizen control.)

3.8. Citizen Control

Demands for community controlled schools, black control, and neighborhood control are on the increase. Though no one in the nation has absolute control, it is very important that the rhetoric not be confused with intent. People are simply demanding that degree of power (or control) which guarantees that participants or residents can govern a program or an institution, be in full charge of policy and managerial aspects, and be able to negotiate the conditions under which "outsiders" may change them.

A neighborhood corporation with no intermediaries between it and the source of funds is the model most frequently advocated. A small number of such experimental corporations are already producing goods and/or social services. Several others are reportedly in the development stage, and new models for control will undoubtedly emerge as the have-nots continue to press for greater degrees of power over their lives.

Though the bitter struggle for community control of the Ocean Hill-Brownsville schools in New York City has aroused great fears in the headline reading public, less publicized experiments are demonstrating that the have-nots can indeed improve their lot by handling the entire job of planning, policy-making, and managing a program. Some are even demonstrating that they can do all this with just one arm because they are forced to use their other one to deal with a continuing barrage of local opposition triggered by the announcement that a federal grant has been given to a community group or an all black group.

Most of these experimental programs have been capitalized with research and demonstration funds from the Office of Economic Opportunity in cooperation with other federal agencies. Examples include:

  1. A $1.8 million grant was awarded to the Hough Area Development Corporation in Cleveland to plan economic development pro-grams in the ghetto and to develop a series of economic enterprises ranging from a novel combination shopping-center-public-housing project to a loan guarantee program for local building contractors. The membership and board of the nonprofit corporation is composed of leaders of major community organizations in the black neighborhood.
  2. Approximately $1 million ($595,751 for the second year) was awarded to the Southwest Alabama Farmers' Cooperative Association (SWAFCA) in Selma, Alabama, for a ten-county marketing cooperative for food and livestock. Despite local attempts to intimidate the coop (which included the use of force to stop trucks on the way to market) first year membership grew to 1,150 farmers who earned $52,000 on the sale of their new crops. The elected coop board is composed of two poor black farmers from each of the ten economically depressed counties.
  3. Approximately $600,000 ($300,000 in a supplemental grant) was granted to the Albina Corporation and the Albina Investment Trust to create a black-operated, black-owned manufacturing concern using inexperienced management and unskilled minority group personnel from the Albina district. The profitmaking wool and metal fabrication plant will be owned by its employees through a deferred compensation trust plan.
  4. Approximately $800,000 ($400,000 for the second year) was awarded to the Harlem Commonwealth Council to demonstrate that a community-based development corporation can catalyze and implement an economic development program with broad community support and participation. After only eighteen months of program development and negotiation, the council will soon launch several large-scale ventures including operation of two super-markets, an auto service and repair center (with built-in manpower training program), a finance company for families earning less than $4,000 per year, and a data processing company. The all black Harlem-based board is already managing a metal castings foundry.

Though several citizen groups (and their mayors) use the rhetoric of citizen control, no Model City can meet the criteria of citizen control since final approval power and account-ability rest with the city council.

Daniel P. Moynihan argues that city councils are representative of the community, but Adam Walinsky illustrates the nonrepresentativeness of this kind of representation:

Who . . . exercises "control" through the representative process? In the Bedford-Stuyvesant ghetto of New York there are 450,000 people - as many as in the entire city of Cincinnati, more than in the entire state of Vermont. Yet the area has only one high school, and SO per cent of its teenagers are dropouts; the infant mortality rate is twice the national average; there are over 8000 buildings abandoned by everyone but the rats, yet the area received not one dollar of urban renewal funds during the entire first 15 years of that program's operation; the unemployment rate is known only to God.

Clearly, Bedford-Stuyvesant has some special needs; yet it has always been lost in the midst of the city's eight million. In fact, it took a lawsuit to win for this vast area, in the year 1968, its first Congressman. In what sense can the representative system be said to have "spoken for" this community, during the long years of neglect and decay?

Walinsky's point on Bedford-Stuyvesant has general applicability to the ghettos from coast to coast. It is therefore likely that in those ghettos where residents have achieved a significant degree of power in the Model Cities planning process, the first-year action plans will call for the creation of some new community institutions entirely governed by residents with a specified sum of money contracted to them. If the groundrules for these programs are clear and if citizens understand that achieving a genuine place in the pluralistic scene subjects them to its legitimate forms of give-and-take, then these kinds of programs might begin to demonstrate how to counteract the various corrosive political and socioeconomic forces that plague the poor.

In cities likely to become predominantly black through population growth, it is unlikely that strident citizens' groups like AWC of Philadelphia will eventually demand legal power for neighborhood self-government. Their grand design is more likely to call for a black city achieved by the elective process. In cities destined to remain predominantly white for the foreseeable future, it is quite likely that counterpart groups to AWC^ will press for separatist forms of neighborhood government that can create and control decentralized public services such as police protection, education systems, and health facilities. Much may depend on the willingness of city governments to entertain demands for resource allocation weighted in favor of the poor, reversing gross imbalances of the past.

Among the arguments against community control are: it supports separatism; it creates balkanization of public services; it is more costly and less efficient; it enables minority group "hustlers" to be just as opportunistic and disdainful of the have-nots as their white predecessors; it is incompatible with merit systems and professionalism; and ironically enough, it can turn out to be a new Mickey Mouse game for the have-nots by allowing them to gain control but not allowing them sufficient dollar resources to succeed. These arguments are not to be taken lightly. But neither can we take lightly the arguments of embittered advocates of community control - that every other means of trying to end their victimization has failed!


A Ladder of Citizen Participation

A Ladder of Citizen Participation - Sherry R Arnstein


Note

Originally published as Arnstein, Sherry R. "A Ladder of Citizen Participation," JAIP, Vol. 35, No. 4, July 1969, pp. 216-224. I do not claim any copyrights.

Webmasters comment, February 2006.

This article has proved quite popular since I put it online in November 2004, there were over 1000 requests for the text just this January. I think that's great and welcome any comments you have, especially about success stories about giving power to communities in making decisions for themselves. You can contact me by visiting our old architecture site and clicking on 'contact'.

This article is about power structures in society and how they interact. Specifically it is a guide to seeing who has power when important decisions are being made. It is quite old, but never-the-less of great value to anyone interested in issues of citizen participation. The concepts discussed in this article about 1960's America apply to any hierarchical society but are still mostly unknown, unacknowledged or ignored by many people around the world. Most distressing is that even people who have the job of representing citizens views seem largely unaware, or even dismissive of these principles. Many planners, architects, politicians, bosses, project leaders and power-holder still dress all variety of manipulations up as 'participation in the process', 'citizen consultation' and other shades of technobable.

This article was reprinted in "The City Reader" (second edition) edited by Richard T. Gates and Frederic Stout, 1996, Routledge Press. Their editors' introduction is well worth reading.

Please copy and re-distribute this article. Let's work to help people understand the difference between 'citizen control' and 'manipulation'. If you're reading this then I assume you are interested in empowering people to take charge of their lives and their surrounding. I salute you for this work.

Enjoy. ( You can also download this document in other formats. )

1. Citizen participation is citizen power

Because the question has been a bone of political contention, most of the answers have been purposely buried in innocuous euphemisms like "self-help" or "citizen involvement." Still others have been embellished with misleading rhetoric like "absolute control" which is something no one - including the President of the United States - has or can have. Between understated euphemisms and exacerbated rhetoric, even scholars have found it difficult to follow the controversy. To the headline reading public, it is simply bewildering.

My answer to the critical what question is simply that citizen participation is a categorical term for citizen power. It is the redistribution of power that enables the have-not citizens, presently excluded from the political and economic processes, to be deliberately included in the future. It is the strategy by which the have-nots join in determining how information is shared, goals and policies are set, tax resources are allocated, programs are operated, and benefits like contracts and patronage are parceled out. In short, it is the means by which they can induce significant social reform which enables them to share in the benefits of the affluent society.

1.1. Empty Refusal Versus Benefit

There is a critical difference between going through the empty ritual of participation and having the real power needed to affect the outcome of the process. This difference is brilliantly capsulized in a poster painted last spring [1968] by the French students to explain the student-worker rebellion. (See Figure 1.) The poster highlights the fundamental point that participation without redistribution of power is an empty and frustrating process for the powerless. It allows the powerholders to claim that all sides were considered, but makes it possible for only some of those sides to benefit. It maintains the status quo. Essentially, it is what has been happening in most of the 1,000 Comm-unity Action Programs, and what promises to be repea-ted in the vast majority of the 150 Model Cities programs.

French student poster. In English, "I participate, you participate, he participates, we participate, you participate...they profit."

2. Types of participation and "nonparticipation"


A typology of eight levels of participation may help in analysis of this confused issue. For illustrative pur-poses the eight types are arranged in a ladder pattern with each rung corres-ponding to the extent of citizens' power in deter-mining the end product. (See Figure 2.)

Figure 2. Eight rungs on the ladder of citizen participation


Eight rungs on the ladder of citizen participation

The bottom rungs of the ladder are (1) Manipulation and (2) Therapy. These two rungs describe levels of "non-participation" that have been contrived by some to substitute for genuine participation. Their real objective is not to enable people to participate in planning or conducting programs, but to enable powerholders to "educate" or "cure" the participants. Rungs 3 and 4 progress to levels of "tokenism" that allow the have-nots to hear and to have a voice: (3) Informing and (4) Consultation. When they are proffered by powerholders as the total extent of participation, citizens may indeed hear and be heard. But under these conditions they lack the power to insure that their views will be heeded by the powerful. When participation is restricted to these levels, there is no follow-through, no "muscle," hence no assurance of changing the status quo. Rung (5) Placation is simply a higher level tokenism because the ground rules allow have-nots to advise, but retain for the powerholders the continued right to decide.

Further up the ladder are levels of citizen power with increasing degrees of decision-making clout. Citizens can enter into a (6) Partnership that enables them to negotiate and engage in trade-offs with traditional power holders. At the topmost rungs, (7) Delegated Power and (8) Citizen Control, have-not citizens obtain the majority of decision-making seats, or full managerial power.

Obviously, the eight-rung ladder is a simplification, but it helps to illustrate the point that so many have missed - that there are significant gradations of citizen participation. Knowing these gradations makes it possible to cut through the hyperbole to understand the increasingly strident demands for participation from the have-nots as well as the gamut of confusing responses from the powerholders.

Though the typology uses examples from federal programs such as urban renewal, anti-poverty, and Model Cities, it could just as easily be illustrated in the church, currently facing demands for power from priests and laymen who seek to change its mission; colleges and universities which in some cases have become literal battlegrounds over the issue of student power; or public schools, city halls, and police departments (or big business which is likely to be next on the expanding list of targets). The underlying issues are essentially the same - "nobodies" in several arenas are trying to become "somebodies" with enough power to make the target institutions responsive to their views, aspirations, and needs.

2.1. Limitations of the Typology

The ladder juxtaposes powerless citizens with the powerful in order to highlight the fundamental divisions between them. In actuality, neither the have-nots nor the powerholders are homogeneous blocs. Each group encompasses a host of divergent points of view, significant cleavages, competing vested interests, and splintered subgroups. The justification for using such simplistic abstractions is that in most cases the have-nots really do perceive the powerful as a monolithic "system," and powerholders actually do view the have-nots as a sea of "those people," with little comprehension of the class and caste differences among them.

It should be noted that the typology does not include an analysis of the most significant roadblocks to achieving genuine levels of participation. These roadblocks lie on both sides of the simplistic fence. On the powerholders' side, they include racism, paternalism, and resistance to power redistribution. On the have-nots' side, they include inadequacies of the poor community's political socioeconomic infrastructure and knowledge-base, plus difficulties of organizing a representative and accountable citizens' group in the face of futility, alienation, and distrust.

Another caution about the eight separate rungs on the ladder: In the real world of people and programs, there might be 150 rungs with less sharp and "pure" distinctions among them. Furthermore, some of the characteristics used to illustrate each of the eight types might be applicable to other rungs. For example, employment of the have-nots in a program or on a planning staff could occur at any of the eight rungs and could represent either a legitimate or illegitimate characteristic of citizen participation. Depending on their motives, powerholders can hire poor people to co-opt them, to placate them, or to utilize the have-nots' special skills and insights. Some mayors, in private, actually boast of their strategy in hiring militant black leaders to muzzle them while destroying their credibility in the black community.

3. Characteristics and illustrations

It is in this context of power and powerlessness that the characteristics of the eight rungs are illustrated by examples from current federal social programs.

3.1. Manipulation

In the name of citizen participation, people are placed on rubberstamp advisory committees or advisory boards for the express purpose of "educating" them or engineering their support. Instead of genuine citizen participation, the bottom rung of the ladder signifies the distortion of participation into a public relations vehicle by powerholders.

This illusory form of "participation" initially came into vogue with urban renewal when the socially elite were invited by city housing officials to serve on Citizen Advisory Committees (CACs). Another target of manipulation were the CAC subcommittees on minority groups, which in theory were to protect the rights of Negroes in the renewal program. In practice, these sub-committees, like their parent CACs, functioned mostly as letterheads, trotted forward at appropriate times to promote urban renewal plans (in recent years known as Negro removal plans).

At meetings of the Citizen Advisory Committees, it was the officials who educated, persuaded, and advised the citizens, not the reverse. Federal guidelines for the renewal programs legitimized the manipulative agenda by emphasizing the terms "information-gathering," public relations," and "support" as the explicit functions of the committees.

This style of nonparticipation has since been applied to other programs encompassing the poor. Examples of this are seen in Community Action Agencies (CAAs) which have created structures called "neighborhood councils" or "neighborhood advisory groups." These bodies frequently have no legitimate function or power. The CAAs use them to "prove" that "grassroots people" are involved in the program. But the program may not have been discussed with "the people." Or it may have been described at a meeting in the most general terms; "We need your signatures on this proposal for a multi-service center which will house, under one roof, doctors from the health department, workers from the welfare department, and specialists from the employment service."

The signatories are not informed that the $2 million-per-year center will only refer residents to the same old waiting lines at the same old agencies across town. No one is asked if such a referral center is really needed in his neighborhood. No one realizes that the contractor for the building is the mayor's brother-in-law, or that the new director of the center will be the same old community organization specialist from the urban renewal agency.

After signing their names, the proud grass-rooters dutifully spread the word that they have "participated" in bringing a new and wonderful center to the neighborhood to provide people with drastically needed jobs and health and welfare services. Only after the ribbon-cutting ceremony do the members of the neighborhood council realize that they didn't ask the important questions, and that they had no technical advisors of their own to help them grasp the fine legal print. The new center, which is open 9 to 5 on weekdays only, actually adds to their problems. Now the old agencies across town won't talk with them unless they have a pink paper slip to prove that they have been referred by "their" shiny new neighborhood center.

Unfortunately, this chicanery is not a unique example. Instead it is almost typical of what has been perpetrated in the name of high-sounding rhetoric like "grassroots participation." This sham lies at the heart of the deep-seated exasperation and hostility of the have-nots toward the powerholders.

One hopeful note is that, having been so grossly affronted, some citizens have learned the Mickey Mouse game, and now they too know how to play. As a result of this knowledge, they are demanding genuine levels of participation to assure them that public programs are relevant to their needs and responsive to their priorities.

3.2. Therapy

In some respects group therapy, masked as citizen participation, should be on the lowest rung of the ladder because it is both dishonest and arrogant. Its administrators - mental health experts from social workers to psychiatrists - assume that powerlessness is synonymous with mental illness. On this assumption, under a masquerade of involving citizens in planning, the experts subject the citizens to clinical group therapy. What makes this form of "participation" so invidious is that citizens are engaged in extensive activity, but the focus of it is on curing them of their "pathology" rather than changing the racism and victimization that create their "pathologies."

Consider an incident that occurred in Pennsylvania less than one year ago. When a father took his seriously ill baby to the emergency clinic of a local hospital, a young resident physician on duty instructed him to take the baby home and feed it sugar water. The baby died that afternoon of pneumonia and dehydration. The overwrought father complained to the board of the local Community Action Agency. Instead of launching an investigation of the hospital to determine what changes would prevent similar deaths or other forms of malpractice, the board invited the father to attend the CAA's (therapy) child-care sessions for parents, and promised him that someone would "telephone the hospital director to see that it never happens again."

Less dramatic, but more common examples of therapy, masquerading as citizen participation, may be seen in public housing programs where tenant groups are used as vehicles for promoting control-your-child or cleanup campaigns. The tenants are brought together to help them "adjust their values and attitudes to those of the larger society." Under these ground rules, they are diverted from dealing with such important matters as: arbitrary evictions; segregation of the housing project; or why is there a three-month time lapse to get a broken window replaced in winter.

The complexity of the concept of mental illness in our time can be seen in the experiences of student/civil rights workers facing guns, whips, and other forms of terror in the South. They needed the help of socially attuned psychiatrists to deal with their fears and to avoid paranoia.

3.3. Informing

Informing citizens of their rights, responsibilities, and options can be the most important first step toward legitimate citizen participation. However, too frequently the emphasis is placed on a one-way flow of information - from officials to citizens - with no channel provided for feedback and no power for negotiation. Under these conditions, particularly when information is provided at a late stage in planning, people have little opportunity to influence the program designed "for their benefit." The most frequent tools used for such one-way communication are the news media, pamphlets, posters, and responses to inquiries.

Meetings can also be turned into vehicles for one-way communication by the simple device of providing superficial information, discouraging questions, or giving irrelevant answers. At a recent Model Cities citizen planning meeting in Providence, Rhode Island, the topic was "tot-lots." A group of elected citizen representatives, almost all of whom were attending three to five meetings a week, devoted an hour to a discussion of the placement of six tot-lots. The neighborhood is half black, half white. Several of the black representatives noted that four tot-lots were proposed for the white district and only two for the black. The city official responded with a lengthy, highly technical explanation about costs per square foot and available property. It was clear that most of the residents did not understand his explanation. And it was clear to observers from the Office of Economic Opportunity that other options did exist which, considering available funds would have brought about a more equitable distribution of facilities. Intimidated by futility, legalistic jargon, and prestige of the official, the citizens accepted the "information" and endorsed the agency's proposal to place four lots in the white neighborhood.

3.4. Consultation

Inviting citizens' opinions, like informing them, can be a legitimate step toward their full participation. But if consulting them is not combined with other modes of participation, this rung of the ladder is still a sham since it offers no assurance that citizen concerns and ideas will be taken into account. The most frequent methods used for consulting people are attitude surveys, neighborhood meetings, and public hearings.

When powerholders restrict the input of citizens' ideas solely to this level, participation remains just a window-dressing ritual. People are primarily perceived as statistical abstractions, and participation is measured by how many come to meetings, take brochures home, or answer a questionnaire. What citizens achieve in all this activity is that they have "participated in participation." And what powerholders achieve is the evidence that they have gone through the required motions of involving "those people."

Attitude surveys have become a particular bone of contention in ghetto neighborhoods. Residents are increasingly unhappy about the number of times per week they are surveyed about their problems and hopes. As one woman put it: "Nothing ever happens with those damned questions, except the surveyor gets $3 an hour, and my washing doesn't get done that day." In some communities, residents are so annoyed that they are demanding a fee for research interviews.

Attitude surveys are not very valid indicators of community opinion when used without other input from citizens. Survey after survey (paid for out of anti-poverty funds) has "documented" that poor housewives most want tot-lots in their neighborhood where young children can play safely. But most of the women answered these questionnaires without knowing what their options were. They assumed that if they asked for something small, they might just get something useful in the neighborhood. Had the mothers known that a free prepaid health insurance plan was a possible option, they might not have put tot-lots so high on their wish lists.

A classic misuse of the consultation rung occurred at a New Haven, Connecticut, community meeting held to consult citizens on a proposed Model Cities grant. James V. Cunningham, in an unpublished report to the Ford Foundation, described the crowd as large and mostly hostile:

Members of The Hill Parents Association demanded to know why residents had not participated in drawing up the proposal. CAA director Spitz explained that it was merely a proposal for seeking Federal planning funds -that once funds were obtained, residents would be deeply involved in the planning. An outside observer who sat in the audience described the meeting this way: "Spitz and Mel Adams ran the meeting on their own. No representatives of a Hill group moderated or even sat on the stage. Spitz told the 300 residents that this huge meeting was an example of 'participation in planning.' To prove this, since there was a lot of dissatisfaction in the audience, he called for a 'vote' on each component of the proposal. The vote took this form: 'Can I see the hands of all those in favor of a health clinic? All those opposed?' It was a little like asking who favors motherhood."

It was a combination of the deep suspicion aroused at this meeting and a long history of similar forms of "window-dressing participation" that led New Haven residents to demand control of the program.

By way of contrast, it is useful to look at Denver where technicians learned that even the best intentioned among them are often unfamiliar with, and even insensitive to, the problems and aspirations of the poor. The technical director of the Model Cities program has described the way professional planners assumed that the residents, victimized by high-priced local storekeepers, "badly needed consumer education." The residents, on the other hand, pointed out that the local store-keepers performed a valuable function. Although they overcharged, they also gave credit, offered advice, and frequently were the only neighborhood place to cash welfare or salary checks. As a result of this consultation, technicians and residents agreed to substitute the creation of needed credit institutions in the neighborhood for a consumer education pro-gram.

3.5. Placation

It is at this level that citizens begin to have some degree of influence though tokenism is still apparent. An example of placation strategy is to place a few hand-picked "worthy" poor on boards of Community Action Agencies or on public bodies like the board of education, police commission, or housing authority. If they are not accountable to a constituency in the community and if the traditional power elite hold the majority of seats, the have-nots can be easily outvoted and outfoxed. Another example is the Model Cities advisory and planning committees. They allow citizens to advise or plan ad infinitum but retain for powerholders the right to judge the legitimacy or feasibility of the advice. The degree to which citizens are actually placated, of course, depends largely on two factors: the quality of technical assistance they have in articulating their priorities; and the extent to which the community has been organized to press for those priorities.

It is not surprising that the level of citizen participation in the vast majority of Model Cities programs is at the placation rung of the ladder or below. Policy-makers at the Department of Housing and Urban Development (HUD) were determined to return the genie of citizen power to the bottle from which it had escaped (in a few cities) as a result of the provision stipulating "maximum feasible participation" in poverty programs. Therefore, HUD channeled its physical-social-economic rejuvenation approach for blighted neighborhoods through city hall. It drafted legislation requiring that all Model Cities' money flow to a local City Demonstration Agency (CDA) through the elected city council. As enacted by Congress, this gave local city councils final veto power over planning and programming and ruled out any direct funding relationship between community groups and HUD.

HUD required the CDAs to create coalition, policy-making boards that would include necessary local powerholders to create a comprehensive physical-social plan during the first year. The plan was to be carried out in a subsequent five-year action phase. HUD, unlike OEO, did not require that have-not citizens be included on the CDA decision-making boards. HUD's Performance Standards for Citizen Participation only demanded that "citizens have clear and direct access to the decision-making process."

Accordingly, the CDAs structured their policy-making boards to include some combination of elected officials; school representatives; housing, health, and welfare officials; employment and police department representatives; and various civic, labor, and business leaders. Some CDAs included citizens from the neighborhood. Many mayors correctly interpreted the HUD provision for "access to the decision-making process" as the escape hatch they sought to relegate citizens to the traditional advisory role.

Most CDAs created residents' advisory committees. An alarmingly significant number created citizens' policy boards and citizens' policy committees which are totally misnamed as they have either no policy-making function or only a very limited authority. Almost every CDA created about a dozen planning committees or task forces on functional lines: health, welfare, education, housing, and unemployment. In most cases, have-not citizens were invited to serve on these committees along with technicians from relevant public agencies. Some CDAs, on the other hand, structured planning committees of technicians and parallel committees of citizens.

In most Model Cities programs, endless time has been spent fashioning complicated board, committee, and task force structures for the planning year. But the rights and responsibilities of the various elements of those structures are not defined and are ambiguous. Such ambiguity is likely to cause considerable conflict at the end of the one-year planning process. For at this point, citizens may realize that they have once again extensively "participated" but have not profited beyond the extent the powerholders decide to placate them.

Results of a staff study (conducted in the summer of 1968 before the second round of seventy-five planning grants were awarded) were released in a December 1968 HUD bulletin. Though this public document uses much more delicate and diplomatic language, it attests to the already cited criticisms of non-policy-making policy boards and ambiguous complicated structures, in addition to the following findings:

  1. Most CDAs did not negotiate citizen participation requirements with residents.

  2. Citizens, drawing on past negative experiences with local powerholders, were extremely suspicious of this new panacea program. They were legitimately distrustful of city hall's motives.

  3. Most CDAs were not working with citizens' groups that were genuinely representative of model neighborhoods and account-able to neighborhood constituencies. As in so many of the poverty programs, those who were involved were more representative of the upwardly mobile working-class. Thus their acquiescence to plans prepared by city agencies was not likely to reflect the views of the unemployed, the young, the more militant residents, and the hard-core poor.

  4. Residents who were participating in as many as three to five meetings per week were unaware of their minimum rights, responsibilities, and the options available to them under the program. For example, they did not realize that they were not required to accept technical help from city technicians they distrusted.

  5. Most of the technical assistance provided by CDAs and city agencies was of third-rate quality, paternalistic, and condescending. Agency technicians did not suggest innovative options. They reacted bureaucratically when the residents pressed for innovative approaches. The vested interests of the old-line city agencies were a major - albeit hidden - agenda.

  6. Most CDAs were not engaged in planning that was comprehensive enough to expose and deal with the roots of urban decay. They engaged in "meetingitis" and were supporting strategies that resulted in "projectitis," the outcome of which was a "laundry list" of traditional pro-grams to be conducted by traditional agencies in the traditional manner under which slums emerged in the first place.

  7. Residents were not getting enough information from CDAs to enable them to review CDA developed plans or to initiate plans of their own as required by HUD. At best, they were getting superficial information. At worst, they were not even getting copies of official HUD materials.

  8. Most residents were unaware of their rights to be reimbursed for expenses incurred because of participation - babysitting, trans-portation costs, and so on. The training of residents, which would enable them to under-stand the labyrinth of the federal-state-city systems and networks of subsystems, was an item that most CDAs did not even consider.

These findings led to a new public interpretation of HUD's approach to citizen participation. Though the requirements for the seventy-five "second-round" Model City grantees were not changed, HUD's twenty-seven page technical bulletin on citizen participation repeatedly advocated that cities share power with residents. It also urged CDAs to experiment with subcontracts under which the residents' groups could hire their own trusted technicians.

A more recent evaluation was circulated in February 1969 by OSTI, a private firm that entered into a contract with OEO to provide technical assistance and training to citizens involved in Model Cities programs in the north-east region of the country. OSTI's report to OEO corroborates the earlier study. In addition it states:

In practically no Model Cities structure does citizen participation mean truly shared decision-making, such that citizens might view them-selves as "the partners in this program. ..."

In general, citizens are finding it impossible to have a significant impact on the comprehensive planning which is going on. In most cases the staff planners of the CDA and the planners of existing agencies are carrying out the actual planning with citizens having a peripheral role of watchdog and, ultimately, the "rubber stamp" of the plan generated. In cases where citizens have the direct responsibility for generating program plans, the time period allowed and the independent technical resources being made available to them are not adequate to allow them to do anything more than generate very traditional approaches to the problems they are attempting to solve.

In general, little or no thought has been given to the means of insuring continued citizen participation during the stage of implementation. In most cases, traditional agencies are envisaged as the implementers of Model Cities programs and few mechanisms have been developed for encouraging organizational change or change in the method of program delivery within these agencies or for insuring that citizens will have some influence over these agencies as they implement Model Cities programs ... By and large, people are once again being planned for. In most situations the major planning decisions are being made by CDA staff and approved in a formalistic way by policy boards.

3.6. Partnership

At this rung of the ladder, power is in fact redistributed through negotiation between citizens and powerholders. They agree to share planning and decision-making responsibilities through such structures as joint policy boards, planning committees and mechanisms for resolving impasses. After the groundrules have been established through some form of give-and-take, they are not subject to unilateral change.

Partnership can work most effectively when there is an organized power-base in the community to which the citizen leaders are account-able; when the citizens group has the financial resources to pay its leaders reasonable honoraria for their time-consuming efforts; and when the group has the resources to hire (and fire) its own technicians, lawyers, and community organizers. With these ingredients, citizens have some genuine bargaining influence over the outcome of the plan (as long as both parties find it useful to maintain the partnership). One community leader described it "like coming to city hall with hat on head instead of in hand."

In the Model Cities program only about fifteen of the so-called first generation of seventy-five cities have reached some significant degree of power-sharing with residents. In all but one of those cities, it was angry citizen demands, rather than city initiative, that led to the negotiated sharing of power. The negotiations were triggered by citizens who had been enraged by previous forms of alleged participation. They were both angry and sophisticated enough to refuse to be "conned" again. They threatened to oppose the awarding of a planning grant to the city. They sent delegations to HUD in Washington. They used abrasive language. Negotiation took place under a cloud of suspicion and rancor.

In most cases where power has come to be shared it was taken by the citizens, not given by the city. There is nothing new about that process. Since those who have power normally want to hang onto it, historically it has had to be wrested by the powerless rather than proffered by the powerful.

Such a working partnership was negotiated by the residents in the Philadelphia model neighborhood. Like most applicants for a Model Cities grant, Philadelphia wrote its more than 400 page application and waved it at a hastily called meeting of community leaders. When those present were asked for an endorsement, they angrily protested the city's failure to consult them on preparation of the extensive application. A community spokesman threatened to mobilize a neighborhood protest against the application unless the city agreed to give the citizens a couple of weeks to review the application and recommend changes. The officials agreed.

At their next meeting, citizens handed the city officials a substitute citizen participation section that changed the groundrules from a weak citizens' advisory role to a strong shared power agreement. Philadelphia's application to HUD included the citizens' substitution word for word. (It also included a new citizen prepared introductory chapter that changed the city's description of the model neighborhood from a paternalistic description of problems to a realistic analysis of its strengths, weaknesses, and potentials.) Consequently, the proposed policy-making committee of the Philadelphia CDA was revamped to give five our of eleven seats to the residents' organization, which is called the Area Wide Council (AWC). The AWC obtained a subcontract from the CDA for more than $20,000 per month, which it used to maintain the neighborhood organization, to pay citizen leaders $7 per meeting for their planning services, and to pay the salaries of a staff of community organizers, planners, and other technicians. AWC has the power to initiate plans of its own, to engage in joint planning with CDA committees, and to review plans initiated by city agencies. It has a veto power in that no plans may be submitted by the CDA to the city council until they have been reviewed, and any differences of opinion have been successfully negotiated with the AWC. Representatives of the AWC (which is a federation of neighborhood organizations grouped into sixteen neighbor-hood "hubs") may attend all meetings of CDA task forces, planning committees, or sub-committees.

Though the city council has final veto power over the plan (by federal law), the AWC believes it has a neighborhood constituency that is strong enough to negotiate any eleventh-hour objections the city council might raise when it considers such AWC proposed innovations as an AWC Land Bank, an AWC Economic Development Corporation, and an experimental income maintenance program for 900 poor families.

3.7. Delegated Power

Negotiations between citizens and public officials can also result in citizens achieving dominant decision-making authority over a particular plan or program. Model City policy boards or CAA delegate agencies on which citizens have a clear majority of seats and genuine specified powers are typical examples. At this level, the ladder has been scaled to the point where citizens hold the significant cards to assure accountability of the program to them. To resolve differences, powerholders need to start the bargaining process rather than respond to pressure from the other end.

Such a dominant decision-making role has been attained by residents in a handful of Model Cities including Cambridge, Massachusetts; Dayton, and Columbus, Ohio; Minneapolis, Minnesota; St. Louis, Missouri; Hartford and New Haven, Connecticut; and Oakland, California.

In New Haven, residents of the Hill neighborhood have created a corporation that has been delegated the power to prepare the entire Model Cities plan. The city, which received a $117,000 planning grant from HUD, has subcontracted $110,000 of it to the neighborhood corporation to hire its own planning staff and consultants. The Hill Neighborhood Corporation has eleven representatives on the twenty-one-member CDA board which assures it a majority voice when its proposed plan is reviewed by the CDA.

Another model of delegated power is separate and parallel groups of citizens and power-holders, with provision for citizen veto if differences of opinion cannot be resolved through negotiation. This is a particularly interesting coexistence model for hostile citizen groups too embittered toward city hall - as a result of past "collaborative efforts" - to engage in joint planning.

Since all Model Cities programs require approval by the city council before HUD will fund them, city councils have final veto powers even when citizens have the majority of seats on the CDA Board. In Richmond, California, the city council agreed to a citizens' counter-veto, but the details of that agreement are ambiguous and have not been tested.

Various delegated power arrangements are also emerging in the Community Action Program as a result of demands from the neighborhoods and OEO's most recent instruction guidelines which urged CAAs "to exceed (the) basic requirements" for resident participation. In some cities, CAAs have issued subcontracts to resident dominated groups to plan and/or operate one or more decentralized neighborhood program components like a multipurpose service center or a Headstart program. These contracts usually include an agreed upon line-by-line budget and program specifications. They also usually include a specific statement of the significant powers that have been delegated, for example: policy-making; hiring and firing; issuing subcontracts for building, buying, or leasing. (Some of the subcontracts are so broad that they verge on models for citizen control.)

3.8. Citizen Control

Demands for community controlled schools, black control, and neighborhood control are on the increase. Though no one in the nation has absolute control, it is very important that the rhetoric not be confused with intent. People are simply demanding that degree of power (or control) which guarantees that participants or residents can govern a program or an institution, be in full charge of policy and managerial aspects, and be able to negotiate the conditions under which "outsiders" may change them.

A neighborhood corporation with no intermediaries between it and the source of funds is the model most frequently advocated. A small number of such experimental corporations are already producing goods and/or social services. Several others are reportedly in the development stage, and new models for control will undoubtedly emerge as the have-nots continue to press for greater degrees of power over their lives.

Though the bitter struggle for community control of the Ocean Hill-Brownsville schools in New York City has aroused great fears in the headline reading public, less publicized experiments are demonstrating that the have-nots can indeed improve their lot by handling the entire job of planning, policy-making, and managing a program. Some are even demonstrating that they can do all this with just one arm because they are forced to use their other one to deal with a continuing barrage of local opposition triggered by the announcement that a federal grant has been given to a community group or an all black group.

Most of these experimental programs have been capitalized with research and demonstration funds from the Office of Economic Opportunity in cooperation with other federal agencies. Examples include:

  1. A $1.8 million grant was awarded to the Hough Area Development Corporation in Cleveland to plan economic development pro-grams in the ghetto and to develop a series of economic enterprises ranging from a novel combination shopping-center-public-housing project to a loan guarantee program for local building contractors. The membership and board of the nonprofit corporation is composed of leaders of major community organizations in the black neighborhood.

  2. Approximately $1 million ($595,751 for the second year) was awarded to the Southwest Alabama Farmers' Cooperative Association (SWAFCA) in Selma, Alabama, for a ten-county marketing cooperative for food and livestock. Despite local attempts to intimidate the coop (which included the use of force to stop trucks on the way to market) first year membership grew to 1,150 farmers who earned $52,000 on the sale of their new crops. The elected coop board is composed of two poor black farmers from each of the ten economically depressed counties.

  3. Approximately $600,000 ($300,000 in a supplemental grant) was granted to the Albina Corporation and the Albina Investment Trust to create a black-operated, black-owned manufacturing concern using inexperienced management and unskilled minority group personnel from the Albina district. The profitmaking wool and metal fabrication plant will be owned by its employees through a deferred compensation trust plan.

  4. Approximately $800,000 ($400,000 for the second year) was awarded to the Harlem Commonwealth Council to demonstrate that a community-based development corporation can catalyze and implement an economic development program with broad community support and participation. After only eighteen months of program development and negotiation, the council will soon launch several large-scale ventures including operation of two super-markets, an auto service and repair center (with built-in manpower training program), a finance company for families earning less than $4,000 per year, and a data processing company. The all black Harlem-based board is already managing a metal castings foundry.

Though several citizen groups (and their mayors) use the rhetoric of citizen control, no Model City can meet the criteria of citizen control since final approval power and account-ability rest with the city council.

Daniel P. Moynihan argues that city councils are representative of the community, but Adam Walinsky illustrates the nonrepresentativeness of this kind of representation:

Who . . . exercises "control" through the representative process? In the Bedford-Stuyvesant ghetto of New York there are 450,000 people - as many as in the entire city of Cincinnati, more than in the entire state of Vermont. Yet the area has only one high school, and SO per cent of its teenagers are dropouts; the infant mortality rate is twice the national average; there are over 8000 buildings abandoned by everyone but the rats, yet the area received not one dollar of urban renewal funds during the entire first 15 years of that program's operation; the unemployment rate is known only to God.

Clearly, Bedford-Stuyvesant has some special needs; yet it has always been lost in the midst of the city's eight million. In fact, it took a lawsuit to win for this vast area, in the year 1968, its first Congressman. In what sense can the representative system be said to have "spoken for" this community, during the long years of neglect and decay?

Walinsky's point on Bedford-Stuyvesant has general applicability to the ghettos from coast to coast. It is therefore likely that in those ghettos where residents have achieved a significant degree of power in the Model Cities planning process, the first-year action plans will call for the creation of some new community institutions entirely governed by residents with a specified sum of money contracted to them. If the groundrules for these programs are clear and if citizens understand that achieving a genuine place in the pluralistic scene subjects them to its legitimate forms of give-and-take, then these kinds of programs might begin to demonstrate how to counteract the various corrosive political and socioeconomic forces that plague the poor.

In cities likely to become predominantly black through population growth, it is unlikely that strident citizens' groups like AWC of Philadelphia will eventually demand legal power for neighborhood self-government. Their grand design is more likely to call for a black city achieved by the elective process. In cities destined to remain predominantly white for the foreseeable future, it is quite likely that counterpart groups to AWC^ will press for separatist forms of neighborhood government that can create and control decentralized public services such as police protection, education systems, and health facilities. Much may depend on the willingness of city governments to entertain demands for resource allocation weighted in favor of the poor, reversing gross imbalances of the past.

Among the arguments against community control are: it supports separatism; it creates balkanization of public services; it is more costly and less efficient; it enables minority group "hustlers" to be just as opportunistic and disdainful of the have-nots as their white predecessors; it is incompatible with merit systems and professionalism; and ironically enough, it can turn out to be a new Mickey Mouse game for the have-nots by allowing them to gain control but not allowing them sufficient dollar resources to succeed. These arguments are not to be taken lightly. But neither can we take lightly the arguments of embittered advocates of community control - that every other means of trying to end their victimization has failed!


This document is also available for download in the following formats:

15 January 2007

"Henry george hoodoo"

Editor’s note: This splendid exchange on the Single Tax (Land Value Tax) proposal of Henry George took place more than one hundred years ago. It appears here thanks to the eagle eye of Mark Monson who spotted it in the annals of Project Gutenberg at http://www.gutenberg.org/dirs/etext96/bti1010.txt. My only contrition to this chain has been to clean up the formatting and introduce paragraph breaks o that it makes for easier reading. (But what about the language? Pure American! Wow. Eric Britton

************************************************

"HENRY GEORGE HOODOO"

A RIGHT ROYAL ROAST. THE ICONOCLAST MADE HARD TO CATCH.

Letter to the Editor, The Iconoclast, Galveston, Tex., August 12, 1897.

Mr. W. C. Brann:

In your editorial on the "Henry George Hoodoo," which appears in the August number of the ICONOCLAST, the following passage occurs: "It seems to me that I have treated the Single Taxers as fairly as they could ask, and if I now proceed to state a few plain truths about them and their faith they will have no just cause to complain."

From the tone and tenor of these words it is fair to assume that in the editorial referred to you have discharged against the Single Taxers and their faith the heaviest broadsides of which your ordnance is capable. If, notwithstanding all the time you have wasted "crucifying the economic mooncalf" which has played such sad havoc with the wits of Single Taxers, it should turn out that the monstrous concept, far from being crucified, annihilated, or even "dying of its own accord," only gathers strength, energy, and renewed activity from the healthful exercise with which you provide it, must it not seem the part of prudence for you, even if occasion of regret for us, that you should abandon the war and leave the calf to his fate?

Your belated and apparently desperate resolve to "tell some plain truths" about us, Single Taxers, justifies the inquiry, what were you telling before? The fact that it seems to yourself that you have treated Single Taxers fairly is not absolutely irrefragable proof that they have been so treated at least it has not brought conviction of the fact to them.

That the offer of your space to Mr. George was courteously declined affords no just ground for refusing it to those "whose matin hymn and vesper prayer reads, there is no God but George," etc. I'll warrant you that if you and the Single Taxers had access on equal terms to a journal which neither controlled, and whose space both were bound to respect, you would not have to go outside the limits of your own state to find a dozen foemen worthy of your steel, and I'd stake my life on it that you'd find not a few to unhorse you.

This is not claiming that any one of them, or all of them together, can come anywhere near you in the artistic manipulation of words or the construction of ear-tickling phrases; but it is claiming, and that without any false pretense of modesty, that they have yet seen no reason to fear you in rigidly logical argument when the Single Tax is the question at issue. Their cause is so palpably just, its underlying principle so transparently simple and elementary, its practical application so direct, feasible and efficient that no mere wizardry of words, no thimble-riggery or language, can by any possibility obscure the principle--or confuse the advocates.

Of course there are among Single Taxers, as among other enthusiasts, men who indiscreetly use abuse for argument, and of these you may have some reason to complain; but should not your great talents and the immense advantages which the undisputed control of your own journal give you, enable you to rise above their abuse, to ignore it completely, and to grapple with only those who present you with argument? I have no right to expect from you more consideration than has been meted out to better men; still, you can but refuse this rejoinder to your August editorial, which is respectfully offered for publication in your journal. If you are quite sure of your ground, you can only gain strength from exposing my weakness, but even if you are not sure of it, both the requirements of simple justice and the amende honorable to Single Taxers would still plead for the publication of this article.

You say that Mr. George has obtained no standing of consequence in either politics or economics "because his teachings are violative of the public concept of truth." Do you really believe that the fact that he has obtained no standing of consequence in politics is in any way derogatory to his character or his teaching? Do you not know full well that a Bill Sykes, a Jonas Chuzzlewit, or a Mr. Montague Tigg would have a hundred chances to attain that distinction to-day to the one chance that Henry George, Vincent de Paul or even Jesus Christ would have? Don't you know this well, and if you do, why do you use it as an argument against Henry George?

As to his standing in economics, that, I submit, is a matter of opinion. You think he has no standing of consequence; I think his teaching is the most active ferment in the economic thought of to-day. We may be both mistaken, but whether we are or not cuts no figure in the truth or falsity of the Single Tax. But it is worth while to point out that the reason you have given for his lack of "standing" lends neither weight nor force to your argument. "Because," you say, "his teachings are violative of the public concept of truth."

When did the public concept of truth become the standard by which to test it? The public concept of the best form of money is, and has been for thousands of years, gold and silver coins. I am much mistaken if that be your concept. By the way, why did you not say "violative of truth," instead of "violative of the public concept," etc.? I guess you had an inward consciousness that a thing is not true or false by public concept, but by being inherently so.

What Henry George taught was inherently true or false before he ever taught it, and would be so still if he had been never born. The only difference would be that so many of us who now bask in the blessed light of inward, if not of outward, freedom would, in that event, be still barking with the great blind multitude over every false trail along which blinder teachers might be leading them and us.

You admit that Mr. George is a polemic without a peer, and you say that "no other living man could have made so absurd a theory appear so plausible, deceived hundreds of abler men than himself." Surely there is something very faulty in the position you assume here. If what you say be so, how do you know that you are not yourself the victim of deception at the hands of some inferior? Or is it only men who have "gone daft on Single Tax" that possess the extraordinary power of leading abler men than themselves by the nose? Surely that were too much honor for an antagonist to concede to them.

More surely still, if a man's intelligence is not proof against deception by inferiors in argument, he can never reach finality in a process of reasoning, and logical proof for him there is none. "He mistakes the plausible for the actual and by his sophistry deceives himself." O pshaw! We all say things sometimes that just do for talk, but this hasn't even that poor excuse. I might just as well say, "He takes the conceivable for the supposable and by his logic enlightens himself. One statement would be as valuable as the other and neither would be worth a pinch of snuff.

Come, let us argue with dignity and composure, like honest men sincerely searching after truth, and eager to lend a hand in abolishing this social Inferno of legalized robbery which fairly threatens to consume us all. There is, you'll admit, such a thing as land value, i. e. value attaching to land irrespective of improvements made in or on it by private industry. This value arises from the presence of a community and can never actually exist without it. If the exclusive creator or producer of a thing is its rightful owner, land belongs to the community that creates or produces it, and can never, in the first instance, rightly belong to any other owner.

The Single Tax is the taking of this value for this community. Is it just? The highest homage, the highest act of faith which the human mind and heart can offer to God is to say that He could not be God and pronounce the Single Tax unjust! Here now is a gage of battle cast at the feet of whoever wishes to take it up, be the same logician, metaphysician or theologian. (Pardon me, Mr. Brann, for momentarily turning aside from you.)

The justice of the Single Tax is beyond all question of refutation. What about its efficiency for the cure of social ills? Here, I think, is where we are widest apart. You say, "the unearned increment is already taken for public use under our present system of taxation." If by "unearned increment" you mean what I have defined as land value (and I think you do) your statement is the wildest and most astounding I ever heard or read from a sane man making an argument. Is it possible you have not learned that where all the land value is taken in taxation there can be no selling value?

And where is the land to-day with a community settled upon it that has not selling value? If land value is already absorbed by taxation, what is it that goes to maintain landlordism? Perhaps you'll contend that landlordism doesn't exist. What value is it that a man pays for when he buys an unimproved lot in the heart of a city? What is it that the boomer booms and the land speculator gambles on when he adds acre to acre and lot to lot without any intention of productive use? What, if not the community value which he expects to attach to his land as a result of increase of population? And what advantage to him as a speculator would this community value be if, as you claim, it is now being absorbed in taxation and should continue to be so absorbed as fast as it arises?

Do landlords in cities and towns retain for themselves only the rent of buildings and hand over to the government the full amount of their ground rents as tax? I know an old eye-sore of a building in this city not worth $150, whose occupant pays $100 a month rent. Do you seriously believe that all of this $1,200 a year which does not go to the city and state in taxes is rent on the old $150 rat-warren?

Why, the thing is too childish for serious discussion; and to have discussed it with you without having been driven to it by yourself, I should have regarded as in the nature of a slight on your intelligence. If what you claim as a fact were true, we would have the Single Tax in full swing now and would be fretting ourselves to fiddle-strings, not to bring it about, but to get rid of it for its evil fruit.

As to whether the Single Tax, in full force, would provide enough revenue for municipal, county, state and federal governments, we, Single Taxers, are not greatly concerned. We have our own opinions on that question and can give better reasons for them than our opponents can give for theirs. But the question is not essential to our argument. What we hold to is that until land values fully taxed prove inadequate for the expenses of government economically administered, not one cent should be levied on labor products, no matter in whose possession found.

This, however, belongs to the fiscal side of our reform. Of infinitely more importance is the social side. Here our end and aim is to secure to all the sons of Adam an equal right to life, liberty and pursuit of happiness by securing to them an equal right in the bounties of nature--and passing strange it certainly is that men who would not dream of denying this right in the abstract are ever ready to anathematize it in the concrete. With the Single Tax in force, that is, with the plain behest of nature observed and respected, no man will hold land out of use when, whether he uses it or not, he must pay to the community its annual value for the privilege of monopolizing it.

No man will hold land for a rise in community value when that value is taken from him for the use of the community as fast as it arises. No man will need to mortgage his home and the earnings of his most vigorous years to a boomer or speculator for the privilege of living on the earth for there will be no boomer or speculator to sell him the privilege, and the privilege itself will have ceased to be such and become an indefeasible right.

"He (Mr. George) is a well-intentioned man who confidently believes he can make the poverty-stricken millions prosperous by revoking the taxes of the rich and increasing the burthens of the poor." Fie, fie! What is to be gained by such transparent, palpable misrepresentation as this? Do you verily believe that land values, which Mr. George proposes to tax, are mainly in possession of the poor? Did you not see--of course you did--a diagrammatic exhibit made not long ago by the New York Herald of the holdings of twenty New York real estate owners?

Let me quote a passage from an article in the New York Journal on this exhibit: "The reason 170 families own half of Manhattan Island, as stated in the Herald, and that 1,800,000 out of the two million residents of Manhattan Island, until very recently, had no interest whatever, except as renters, in this superb property, is because, until the last few years, it required a fortune to own the smallest separate parcel of this great estate. Only the rich could participate in its ownership, its income, its profits."

Now is it your view that all this is but clumsy lying, and that in reality it is the poor people of New York as of other large cities that own the bulk of its land values? Again you say, "He would equalize the conditions of Dives and Lazarus by removing the tax from the palace of the one and laying it upon the potato patch of the other." This statement is much more artistic than the preceding one. It wears a jaunty semblance of truth. Indeed it is true in a sense as far as it goes. But it is vague and incomplete, and for that reason as deceptive and misleading as half truths always are.

With your permission I will fill it out in parenthesis and convert it into an honest whole truth: "He would equalize the conditions of (both freedom and justice for) Dives and Lazarus by removing the tax from the palace of the one (and from the labor products of the other) and laying it upon (the community value of the land occupied by the palace and) the potato patch of the other." Now, if the potato patches of the poor occupy, as a rule, more valuable land than the palaces of the rich, there might be some apparent ground for your contention. It would be only apparent, however, for in such a case the potato patch would be as much out of place as a public school on a wharf front. To devote highly valuable land to ordinary potato culture would be about as sensible as to print the Sunday edition of the Galveston News on costly linen paper.

One of the virtues of the Single Tax is its potency to prevent such stupid waste of opportunity. Your way of stating the case, however, has this virtue that it is a welcome variation of the old wearisome chestnut about the poor widow owning a valuable lot, etc. You believe Progress and Poverty inspired by the plutocracy, "250,000 of whom own 80 per cent. of the taxable wealth of the country, while the land is largely in possession of the great middle class."

Passing over the source of the inspiration, you have come pretty close to the truth here! Unfortunately for you, however, the statement has no value in the argument. Single Taxers do not need to deny that the great middle class largely own the land, but they do claim, and you won't have the hardihood to deny it, that the plutocracy own the vast bulk of the land values. You will perceive the distinction when you reflect that the land is nearly all out in the country, while the land values are nearly all in the cities and towns.

To tax land according to area is the bug-a-boo you are putting up your guards to; to tax it according to community value is what we invite you to smash if you can. You "cannot understand how a man possessed of common sense could fail to see that removing taxation from the class of property chiefly in the hands of the rich and placing it altogether on property chiefly in the hands of the comparatively poor, could fail to benefit the millionaire at the expense of the working man." Neither can I, if you tax it according to quantity, but that is not the Single Tax and it is time you knew it.

Let me tell you now something that I can't understand--why a man who has the means and the ability to strike giant blows for the cause of the blind, stupid, plundered humanity prefers to waste his time, his talents, his opportunities making himself a straw man and, with that silly-looking thing for antagonist, belaboring all about him like a bull in a china shop. Your sincerest well-wishers, of whom I claim to be one, earnestly hope you will soon change your tactics.

You ask some practical questions which it may be well to answer: "How will you prevent the Standard Oil Company forcing weaker concerns to the wall by the simple expedient of selling below cost of production?" The Standard Oil trust is maintained

(1) by monopoly of oil lands;

(2) by monopoly of pipe lines;

(3) by collusion with railroads.

The Single Tax and its corollaries would absolutely destroy each of these advantages;

(1) by throwing unused oil lands open to all on equal terms;

(2) by government ownership or complete control of pipe lines to all distributing points, such lines being open for use to all oil producers on equal terms;

(3) by exactly analogous treatment of railroads.

With the three-fold monopoly of oil lands, pipe line, and railroad abolished, the Standard Oil trust would find no wall against which to crush weaker concerns.

As to the trust, we hope that the abolishment of the thieves' compact, i.e. the protective tariff, will make the trusts sick unto death. Absolute free trade, a necessary concomitant of the Single Tax, will leave 99 per cent. of the trusts stranded. If any survive it will not be the fault of the Single Tax.

Be it remembered that the evils which the Single Tax is guaranteed to cure are, primarily, land monopoly, and, secondarily, all the other monopolies based upon it; as those of the coal, iron and lumber trust, the Standard Oil trust, etc. "With coal fields leased to the operators by Uncle Sam, how would you prevent Hanna organizing a pool, limiting production, raising prices and reducing wages?" Coal fields are included in the economic term, land. When unused land is free for occupancy, unused coal fields will also be free. If Mark sought to limit production by shutting down his mines, one of two things would happen. Either somebody else would start in to mine coal, or Mark's tax would be raised till the wisdom of either letting go or resuming would dawn on his fat wits. Unless he owned or controlled the coal fields he could not limit production, raise prices, or cut down wages.

"How will you prevent the Standard Oil company forcing weaker concerns to the wall by the simple expedient of selling below cost of production?" We wouldn't prevent them. But if they afterwards tried to recoup their losses by raising prices as they do now, we might get after them with a tax commensurate with their asinine generosity, and keep after them till other concerns got well on their feet. If they became too refractory, what's to prevent the government from taking hold itself and working the oil wells for the benefit of the whole people?

Remember the government is theoretically the people's servant, and it could be actually so if the people only had a little intelligence and moral courage. You very needlessly tell your Ft. Hamilton friend that land is the primal source of all wealth; that it does not produce wealth, but simply affords man an opportunity to produce it; you forgot to add--provided the landlord doesn't prevent him.

You say in another place, "Figure it as you will, adjust it as you may, a tax is a fine on industry and will so remain until you get blood from turnips," etc. This very objection in protean form is continually being raised by a class of shallow-thinking men with whom the editor of the ICONOCLAST should not be proud to herd.

"What difference docs it make," they say, "whether I pay rent to the government or to a landlord when I've got to pay it anyhow? And what difference does it make whether taxes are levied on my land or my improvements, or both, so long as I've got to pay them with the products of my labor?" Now, it is quite true that all taxes of whatever nature are paid out of the products of labor. But must they be for that reason a tax on labor products.

Let us see. I suppose you won't deny that a unit of labor applies to different kinds of land will give very different results. Suppose that a unit of labor produces on A's land 4, on B's 3, on C's 2 and on D's 1. A's land is the most, and D's is the least, productive land in use in the community to which they belong. B's and C's represent intermediate grades. Suppose each occupies the best land that was open to him when he entered into possession. Now, B, and C, and D have just as good a right to the use of the best land as A had. Manifestly then, if this be the whole story, there cannot be equality of opportunity where a unit of labor produces such different results, all other things being equal except the land. How is this equality to be secured? There is but one possible way. Each must surrender for the common use of all, himself included, whatever advantages accrues to him from the possession of land superior to that which falls to the lot of him who occupies the poorest. I

n the case stated, what the unit of labor produces for D, is what it should produce for A, B and C, if these are not to have an advantage of natural opportunity over D. Hence equity is secured when A pays 3, D, 2 and C, 1 into a common fund for the common use of all--to be expended, say in digging a well, making a road or bridge, building a school, or other public utility. Is it not manifest that here the tax which A, B and C pay into a common fund, and from which D is exempt, is not a tax on their labor products (though paid out of them) but a tax on the superior advantage which they enjoy over D, and to which D has just as good a right as any of them.

The result of this arrangement is that each takes up as much of the best land open to him as he can put to gainful use, and what he cannot so use he leaves open for the next. Moreover, he is at no disadvantage with the rest who have come in ahead of him, for they provide for him, in proportion to their respective advantages, those public utilities which invariably arise wherever men live in communities. Of course he will in turn hold to those who come later the same relation that those who came earlier held to him.

Suppose now that taxes had been levied on labor products instead of land; all that any land-holder would have to do to avoid the tax is to produce little or nothing. He could just squat on his land, neither using it himself nor letting others use it, but he would not stop at this, for he would grab to the last acre all that he could possibly get hold of. Each of the others would do the same in turn, with the sure result that by and by, E, F and G would find no land left for them on which they might make a living. So they would have to hire their labor to those who had already monopolized the land, or else buy or rent a piece of land from them.

Behold now the devil of landlordism getting his hoof on God's handiwork! Exit justice, freedom, social peace and plenty. Enter robbery, slavery, social discontent, consuming grief, riotous but unearned wealth, degrading pauperism, crime breeding, want, the beggar's whine, and the tyrant's iron heel. And how did it all come about? By the simple expedient of taxing labor products in order that precious landlordism might laugh and grow fat on the bovine stupidity of the community that contributes its own land values toward its own enslavement!

And yet men vacuously ask, "What difference does it make?" O tempora! O mores! To be as plain as is necessary, it makes this four-fold difference.

· First, it robs the community of its land values;

· second, it robs labor of its wages in the name of taxation;

· third, it sustains and fosters landlordism, a most conspicuously damnable difference;

· fourth, it exhibits willing workers in enforced idleness; beholding their families in want on the one hand, and unused land that would yield them abundance on the other.

This last is a difference that cries to heaven for vengeance, and if it does not always cry in vain, will W. C. Brann be able to draw his robe close around him and with a good conscience exclaim, "It's none of my fault; I am not my brother's keeper." It will not do, my dear friend; you must think again on the Single Tax, even though, in doing so, you might make men suspect that you are not infallible. The sublimest act it will ever be given you to perform is to candidly confess to your grand and ever-growing constituency that you were mistaken in your estimate of the Single Taxers and their faith.

"Government must compel each to pay toll in proportion the amount of wealth it has produced--and this is the only equitable law of taxation." Just reflect for a moment what a monstrous conclusion flows from these premises. Labor applied to land produces all wealth. Landlordism as such produces nothing. Therefore labor should bear the whole burden of taxation, while landlordism and all other forms of monopoly should go scot free. T

he iniquity of our present system of taxation is that a portion of it is levied on land instead of being all levied on labor products, like the tariff! To be strictly just, we must quit taxing land and exact no royalty from owners of coal mines and oil wells! That your view? "There is every indication that his cult has had its day and is rapidly going to join the many other isms, political and religious, that have been swallowed up like cast off clothes and other exuviae by the great mother of dead dogs." This is fine, incontestably fine! Also forcible, impressibly forcible--with the force of a squirt of tobacco juice.

If "the Single Tax party will not long survive its creator," perhaps it is because it has not as much attraction for the great sovereign voter as the blessed protective tariff, which, to use your own fantastic expression, you should "cosset on your heaving brisket" for its splendid success as a survivor of its primogenitors.

Look at the pinnacle of political success to which the McKinley bill has brought Bill McKinley (excuse the paltry little pun) and sound money (saving your presence) brought Grover Cleveland, and then contemplate the ignominy and obscurity has brought George and free silver has brought Bryan. Evidently George isn't a mouse to McKinley, while Bryan is but a brindle pup compared to the great and only Grover.

Yes, the "public concept of truth" makes it plain that protection is all right and Single Tax all wrong. "George is a reformer who can't reform because he took issue with the wisdom of the world," just like the man who said that the earth was round and that the sun didn't go round it every twenty-four hours, contrary to what the wisdom of the world had long ago decided.

You are not mistaken in saying that "Mr. George was unable to keep one of these expounders of his doctrine (a S.T. paper) from running on the financial rocks." It is a very logical deduction to draw from this fact that the teachings of the paper were worthless.

Why should anybody teach what does not, in the teaching, promote his financial prosperity? See what fools Professors Bemis and Andrews have made of themselves. Because they did not have due regard for the "public concept of the truth" they are cashiered; and it serves them right, for the truth must be vindicated--if it pays.

On the other hand, see what splendid financial successes the ICONOCLAST, the Galveston News and the so-called yellow journalism of New York all are. "Deserve, in order to command success," the old copy-book headline used to say, from which it follows as mud does rain, that whatever succeeds deserves it, and whatever doesn't, doesn't. It doesn't take much besides capital to succeed, however, "where the conditions for the propagation of empiricism are more favorable than ever before." All you have to do is to propagate and expound the "public concept of truth" and let the truth itself alone. The Single Taxers respectfully solicit some more plain truths on the "Mumbojumboism of George."

Thomas Flavin. . . .

* * *

Response from the editor:

Thomas Flavin

Ever since the appearance of my first courteous critique of the Single Tax theory the followers of that faith have been pouring in vigorous "replies"; but as my articles were directed to Mr. George and not to his disciples, I saw no occasion for the latter to intermeddle in the matter, and the tide of economic wisdom went to waste. Although a publisher is supposed to be privileged to select his own contributors, and Mr. George had been requested to make reply at my expense, the Single Taxers raised a terrible hue and cry that the ICONOCLAST was unfair in that it "permitted one side to be presented."

In order to cast a little kerosene upon the troubled waters I decided that they should be heard, and selected Dr. Flavin as their spokesman, believing him to be the ablest of those who have followed this particular economic rainbow into the bogs. So much by way of prolegomenon; now for the doctor.

My very dear sir, I shall heed your advice to "rise above" the abuse of those who mistake impudence for argument, and ignore the discourteous remarks with which you have so liberally interlarded your discourse. Doubtless you include yourself among that numerous tribe of Texas titans who can "unhorse" me as easily as turning a hen over; and having accorded you unlimited space in which to acquire momentum, I would certainly dread the shock were I cursed with an atom of polemical pride. Frankly, I wish you success--trust that you can demonstrate beyond a peradventure of a doubt that all my objections to the Single Tax are fallacious, that it is indeed the correct solution of that sphinx riddle which we must soon answer or be destroyed.

At a time when the industrial problem is pressing upon us with ever increasing power, it is discouraging to hear grown Americans prattling of "unhorsing" economic adversaries--priding themselves on polemical fence, like shyster lawyers, and seeking victory through sophistry rather than truth by honest inquiry. That is not patriotism, but a picayune partisanship which I profoundly pity.

Regarding "the public concept of truth" which seems to irritate you sorely, I will simply say that the people are slow to accept new and startling truths like those promulgated by Galileo, Newton and Harvey; but a truth, howsoever strange, GROWS year by year and age by age, while a falsehood creates more or less flurry at its birth, then fades into the everlasting night of utter nothingness.

That Mr. George's theory, after several years of discussion, is declining in popular favor, and has never made a convert among the careful students of political economy, is strong presumptive evidence that it is not founded on fact. The more you hammer truth the brighter it glows; the more you hammer Georgeism the paler it gets. It is not for me to prove the fallacy of the Single Tax theory--the onus probandi rests with its apostles, and they but saltate from mistaken premises to ridiculous conclusions. Like the German metaphysicians, they are abstract reasoners who do not trouble themselves about conditions.

It is not well to sneer at "the great blind multitude" because it fails to see the beauty or wisdom in the Single Tax, for many a great man before Lincoln's time had profound respect for the judgment of the common people. "Truth," say the Italians, "is lost by too much controversy;" and while the Georges and Flavins split hairs and spute and spout themselves into error, the hard- headed farmer and mechanic, exercising their practical common-sense, arrive at correct conclusions.

In saying that Mr. George has, by his sophistry, "deceived hundreds of abler men than himself," I simply accredited him with a feat that has been a thousand times performed. Carliostro was an ignoramus and possessed very ordinary intellect, yet for several years he succeeded in deceiving some of the wisest men of his day with his Egyptian Masonry idiocy. Thousands of fairly intelligent people believed poor looney Francis Schlatter a kind of second Messiah, some of the ablest men of Europe were misled by half-crazy Martin Luther--and Dr. Flavin regards Henry George's economic absurdities as omniscience. The latter has "mistaken the plausible for the actual," has deceived himself with his own sophistry, else he and his few score noisy followers are wiser than all the rest of the world, or, for the sake of gain or cheap notoriety, he's peddling what he knows to be arrant nonsense. You may take as many "pinches of snuff" on that proposition as you please.

All your remarks about land values, their origin and rightful ownership--the tiresome old piece de resistance of every Single Tax discourse--I answered fully in my two former articles on this subject, wherein I also explained how the "unearned increment" is at present appropriated by the public, and I cannot afford to rethresh old straw for the benefit of Single Taxers who WILL write and WON'T read.

I will remark en passant, however, that by "unearned increment" I mean exactly what I suppose Mr. George to mean--increase in the market value of land for which the proprietor is not responsible. This, I have explained, is already appropriated by the public, because the total annual increase in land values in this country--barring betterments of course--does not exceed the total annual tax levied upon the land. There's always a boom in land values here and there; but hundreds of millions of acres, urban and suburban, have not increased a penny in selling price during the past decade. The owners are reaping no unearned increment, but they are paying taxes regularly into the public till.

"The exclusive creator or producer of a thing is the rightful owner," says Dr. Flavin. Quite true; and as the only thing the community creates for the land owner is the unearned increment, it has no moral right to take anything more. The Single Taxers persist in ignoring the fact that there is an EARNED as well as an UNEARNED increment, and that the former is as much the property of the individual as the barn he builds or the calf he breeds. Of this earned increment more anon.

"The highest homage, the highest act of faith which the human mind and heart can offer to God is to say he could not be God and pronounce the Single Tax to be unjust!" O hell! That's not argument, but simply empty declamation intended to tickle the ears of the groundlings--to raise a whoop among the gallery gods. As you have suggested, "Come, let us argue with dignity and composure," instead of emitting fanatical screeches like fresh converts at a Methodist camp meeting, let's see about this God of Justice business:

About 200 years ago a party whom we will call Brann, as that happened to be his name "cleared" a farm in the wilds of Virginia, enduring all the hardships and dangers of the frontier. He built roads and bridges, drained swamps, exterminated Indians and wild animals. His descendants helped drive out the British butchers, some of them being scalped alive by John Bull's red allies, while their wives and children were tomahawked. They contributed in their humble way to secure the blessings of free government which the present inhabitants of Virginia enjoyed. They helped support schools, churches and charities and otherwise make the district desirable as a place of residence. Finally railways were built and stores opened, not to enrich these people, but to be enriched by them.

These conveniences added to the value of the land, but were paid for at a good round price, as such things ever are by the users. The land is now worth about $30.00 an acre, and while this value is unquestionably due to the presence of population, {sic} it is fair to assume that in two centuries the estate has yielded that much in the shape of taxes. As the present owner, I ask, has the Old Dominion against that property for unearned increment? I say it has not; that the $30.00 an acre represents the savings of seven generations of my ancestors; that while the community created the land value, said value has been duly purchased and paid for--that it represents EARNED increment.

Unearned increment is not what Dr. Flavin is after; he would confiscate the RENT of my patrimony; he would deprive me of the VALUES created by my people--would allow me no larger share therein than he accords to the newly arrived immigrant from that damned island we call England. If our God says THAT is just, then I want no angelic wings--prefer to associate with Satan.

Has the son a just right to wealth created and solemnly bequeathed him by his sire? That land is as much mine as the gold would be mine, had my people their savings in that shape, and the rent is mine as justly as the interest on the gold would be. It is quite true that none of my clan CREATED that land; it is true that I cannot show a title to it signed by God Almighty and counter- signed by the Savior, any more than I can show a title from the same high source to the watch I hold in my hand; but I have a title to all the rights, conveniences and profits appertaining to control of the land, issued by their creator, the community, for value received. I have the same title to the land that I have to the watch; not to the material made by the Almighty, but to whatsoever has been added of desirability thereto by the action of man. The community has been settled with up-to-date for both the land and the watch, but has a continuing claim against them so long as it enables me to employ them advantageously than I could without its assistance.

If I sell my land the purchaser receives in return for his money all those advantages which it required so many years of toil and danger to win--he pays for the sacrifices made by others in preference to going into the wilderness and making them himself. The market value of my land is a "labor product," just as my watch is a labor product, hence all this prattle about relieving industry of governmental burdens by any economic thaumaturgy whatsoever is the merest moonshine.

It is quite true that "the great middle class" does not own the most valuable lots in New York and London; but I have the "chilled steel" hardihood to affirm that not only the bulk of the land but of the land values are in the possession of people who are poor as compared with the occupants of those sumptuous palaces which the George conspiracy for the further enrichment if Dives and the starvation of Lazaras would exempt from taxation.

The total wealth of this nation is not far from 75 billions, while all the land, exclusive of improvements, would not sell for more than 20 billion. The naked land of our 5 million farms is estimated at about 10 billion, so that leaves but about 10 billion for urban lands--less than one-seventh of the total value. I have no reliable statistics at hand showing what proportion of urban inhabitants own their homes; but we may safely assume that one-half do so. Now, if this be true, we may also assume that the land values held by the very wealthy--the people whom the Single Taxers profess to be after,--do not exceed one-fourth of all land values, or one-fifteenth of total property values. Hence you see it is quite possible for 250,000 to own 80 per cent of ALL values, while the bulk of the LAND values remain with the common people. And it is these common people that the Single Tax will crush for the benefit of these 250,000 plutocrats, the bulk of whose wealth is in personal property.

it down and think it over, doctor; you are really too bright a man to be led astray by the razzle-dazzle of Single Tax sophistry. You do your enviable reputation for intelligence a rank injustice by mistaking poor old George for an economic Messiah, and if you are not careful somebody will try to sell you a gold-brick or stock in a Klondike company. Suppose that you and Hon. Walter Gresham occupy residence lots worth $1,000 each, but that you inhabit a $1,500 cottage and he a $150,000 mansion; and suppose that your income is $2,000 a year while his is $20,000: Do you think there is any necessity for tearing your balbriggan undershirt because not compelled to put up as much for the maintenance of government as your wealthy neighbor? Is it at all probable that Gresham will become discouraged, refuse to longer serve the corporations and sit in the woodshed and sulk, even jump off the bridge, because taxed in proportion to the property in his possession rather than according to the land he occupies?

If Col. Moody builds a million dollar cotton mill on suburban land worth but $500 why should you refuse to sleep o' nights because not required to pay double the taxes of that old duffer? As a worthy disciple of Aesculapius you should know that too heavy a burden on your own back is liable to make you bow-legged.

I suspected all along that the Single Tax would require several able-bodied "corollaries" to enable it to effect much of a reformation, to usher in the Golden Age. It were very nice to throw unused coal and oil lands "open to all on equal terms," have the government pipe off all their products for equal pay, then compel operators by piling on taxes to maintain high prices to consumers "till other companies got well on their feet"--and a combination was effected. If Rockefeller, Hanna, Carnegie, et id genes omnes tried any of their old tricks "we might get after them"--just as we HAVE long been doing. These plutocrats are so afraid of our politicians that there is danger of their dying of neuropathy. If the coal, iron and oil operators advance prices we'll advance their taxes--for the people to pay. And I suppose that when the whiskey trust get gay, the doctor will raise the rent of corn land, when the cotton-seed oil trust becomes too smooth, he'll knock it on the head by adding a dollar an acre to cotton land, and so on until we get the cormorant fairly by the goozle. It's all dead easy when you understand it--works as smoothly as an "iridescent dream" on a toboggan slide! We are continually discovering new coal, iron and oil districts, and these are "open to all on equal terms"--I can acquire them just as cheaply as can Rockefeller or Carnegie.

Then what's the matter? I lack the capital to properly develop them, to produce so cheaply as my wealthy competitors. Or if able to become a thorn in the side of the great corporations they either lower prices and freeze me out or make it to my advantage to enter the syndicate. When Rockefeller lowers the price of oil he lowers his rent; when I am either crushed by competition or taken in out of the cold, he advances the price of oil. His rent is regulated by competition for the use of oil lands--you cannot make him pay more than the market price. When you raise his rent you raise that of all the other operators in proportion, and the same is the same as an increase of the excise on whisky--the people get a meaner grade of goods at a higher price.

If an ordinary man cooked up such a scheme as that for the benefit of the people, I'd feel justified in calling him a "crank," and I cannot conceive how a man like Dr. Flavin can tack his signature to such tommy-rot. Before we can make the Single Tax "a go" we've got to have government ownership of telegraphs, railways, pipe-lines, etc., etc., and use the taxing power to regulate prices just as the Republicans do the tariff--and for what? To humble the haughty landlord? Oh no; to knock the stuffing out of capital--so long wept over by Single Taxers as a fellow sufferer with toil.

Why not call the George system Communism?--"a rose by any other name," etc. When the doctor get matters arranged it will really make no difference whether a farmer is located in the black-waxy district, or on the arid cactus-cursed lands of the trans-Pecos country, as he will have to surrender to the public all he produces in excess of what the poorest land in use will yield. He will have no incentive to study the capabilities of his land and bring to bear upon it exceptional industry, for he will be deprived of all the increase he can make it yield by such methods. A will be placed on a parity with D because he took the best land he could get instead of the poorest he could find. Intelligence and enterprise are to have no reward under the new regime. You can squat on a sand-bank or pile of rocks in any community and be on a financial parity with the man whose black soil reaches to the axis of the earth--no need to bundle the old woman into a covered wagon, tie the brindled cow to the feed-box and head for a country where better land is to be had. There will be no temptation to carve out a home in the wilderness, for later immigrants will set at naught your toil and sacrifices and deprive your children of their patrimony--the best situated merchant in Waco will have no advantage of the keeper of a tent store on a side street of Yuba Dam or Tombstone. A tax will not longer be "a fine on industry"--it will be a fine on fools.

My Galveston friend should not work himself into a fit of hysteria because I declared that the George doctrine has had its day, it being sheer folly to quarrel with a self-evident fact. When Henry George first flamed forth he made a great deal of money out of his writings, and has thus far shown no more aversion to the silver than has your humble servant. His paper was doubtless launched with a view of promoting his financial and political fortunes, for he did not go broke publishing it "for the good of the cause," but promptly rung off when he found that it did not PAY, hence I fail to see that he is entitled to any more credit than Col. Belo or myself. I called attention to the failure of his paper, not in a spirit of rejoicing over its downfall, but simply to accentuate the fact, after giving some years to consideration of his rather pretty platitudes, that people condemned them--that his heroic attempt to reclothe with living flesh the bones of the impot unique had proven a dismal failure.

Now, my dear doctor, I have not undertaken in this hasty article to fully expose this Single Tax fallacy, having attended to that heretofore, but simply to answer a few of your arguments which I had not hitherto heard. Let's drop the subject--let the dead go bury its dead, while we devote our energies to LIVING issues. _

W. C. Brann_,_._,___

29 November 2006

World Transport Policy & Practice, Volume 12, Number 4

Editor’s note: As part of our strategy over at the Journal of World Transport Policy and Practice, we are placing this summary introduction to the latest number of the journal to the New Mobility Thinkpad here for your information and comment. To access the full volume all you have to do is click the above title. Let us know what you think of this, as well as any other ideas you might have for importing the journal and its potential impact on policy and practice in our troubled sector.

Eric Britton

World Transport Policy & Practice

Volume 12, Number 4


© 2006 Eco-Logica Ltd.

Editor

Professor John Whitelegg

Stockholm Environment Institute at York, Department of Biology, University of York, P.O. Box 373, York, YO10 5YW, U.K

Editorial Board

Eric Britton

Managing Director, EcoPlan International,

Centre for Technology & Systems Studies,

8/10 rue Joseph Bara, F-75006 Paris, FRANCE

Professor John Howe

Independent Transport Consultant, Oxford, U.K

Mikel Murga

Leber Planificacion e Ingenieria, S.A., Apartado 79, 48930- Las Arenas, Bizkaia, SPAIN

Paul Tranter

School of Physical Environmental & Mathematical Sciences, University of New South Wales, Australian Defence Force Academy, Canberra ACT 2600, AUSTRALIA

Publisher

Eco-Logica Ltd., 53 Derwent Road, Lancaster, LA1 3ES, U.K Telephone: +44 (0)1524 63175

E-mail: j.whitelegg@btinternet.com

http://www.eco-logica.co.uk/WTPPhome.html



Contents

Abstracts & Keywords 3

Editorial 5

John Whitelegg

Introduction 7

Joseph Szyliowicz and Zhou Wei

The Development and Current Status of China’s Transportation System 10

Wei Zhou, Joseph S. Szyliowicz

Transport-Related Resource and Environmental Issues in China 17

Jiang Yulin & Feng Liguang

Business, Management and Planning for Sustainable Transportation Development 29

Wang Yuanqing & Li jiangying

Transportation Related Socio-Economic Issues in China 35

Feng Liguang

Rural Transportation (Adaptability and Fund Policy) 41

Li Yang

Strategy Vision and Policy Recommendations on China’s Sustainable Transportation 46

Wei Zhou & Joseph S. Szyliowicz


Abstracts & Keywords

The Development and Current Status of China’s Transportation System

Wei Zhou, Joseph S. Szyliowicz


This paper analyses the development and current status of China’s Transportation System in detail, including the main aspects such as transportation infrastructure, equipment, transport management structure etc. Meanwhile, it also points out some crucial problems and challenges facing Chinese transportation development, including Investment of transportation infrastructure construction and maintenance, construction of integrated transport system, Costs of Transportation and transportation technical capacity building issues.

Keywords

Transportation infrastructure, equipment, management structure, integrated transport system, maintenance


Transport-Related Resource and Environmental Issues in China

Jiang Yulin & Feng Liguang


This paper analyses the status of transport-related energy and environmental and problems in China. The great challenges facing the energy and environmental development strategy in China are also discussed. Specific policy recommendations for sustainable transport energy and environment development are also advanced to provide effective references for government and decision-makes in the Chinese transport sector.

Key words

Sustainable Development, Transport Energy, Transport Environment, Pollution, Energy Consumption


Business, Management and Planning for Sustainable Transportation Development

Wang Yuanqing & Li jiangying


We discuss the Chinese transportation system according to the present and developing trends of business, management and planning. The Chinese market reforms began with economic changes and have achieved remarkable results in the past 20 years. So, in order to establish a sustainable transportation system, we must promote linkages to the government’s management goals and organizational reforms.

Keywords

Sustainable transportation, business, management, planning


Transportation Related Socio-Economic Issues in China

Feng Liguang


This paper analyses the transportation-related issues in China, including the state of transportation investments, transportation social equity, transportation related health issues, transportation efficiency and the state of rural road construction, etc. The paper then advances some actual recommendations for realising sustainable transportation development in China.

Keywords

Transportation Socio-Economic issues, Transportation Equity, Transportation Safety


Rural Transportation

(Adaptability and Fund Policy)

Li Yang


Although China has made great achievements in rural road construction, it still cannot meet the demands for development of the social economy in rural areas. To achieve Chinese rural roads’ general development goals, it is essential to obtain construction funds. Accordingly, this article analyses the present financing system of Chinese rural roads and advances suggestions for a Funding Policy for the Development of Rural Roads that conforms to China’s national conditions. “Rural roads” in this paper refers to county roads, town roads and village roads.

Key words

Rural roads; Financing; Fund Policy


Strategy Vision and Policy Recommendations on China’s Sustainable Transportation

Wei Zhou & Joseph S. Szyliowicz


Based on the discussion and analyses of the issues and problems confronting China’s transportation system as presented in the other papers, we advance a strategic vision and specific policy recommendations that are designed to promote the development of a sustainable transportation system in China.

Keywords

Strategic Vision, Policy Recommendations, Sustainable Transportation, Economic and other policy measures, administration, External Impacts


Editorial

John Whitelegg

A special issue on China is long overdue. China has achieved remarkable progress with its economic growth and poverty reduction programmes but the time is now ripe to take stock. In a globalised world of huge international trade flows, oil dependency, climate change problems and foreign policy interdependence it is right that this stock taking should be both external and internal. The world has a huge interest in China’s development path and its future trade balances, greenhouse gas emissions and ability to acquire increasingly large shares of available oil. Equally China has a legitimate role in commenting and, if appropriate, criticising those countries like the USA and the UK that have achieved rich country status on the back of very similar process of economic growth, industrialisation, urbanisation and trade. This criticism would be especially deserved if there was a hint of humbug or “don’t do what I did” in any stock taking of China.

China presents us all with the opportunity to comment on and resolve a dilemma. Success in economic growth must eventually come up against the disbenefits and problems associated with air pollution, congestion, loss of agricultural land, health impacts (including the 250,000 Chinese who die each year in road crashes) and societal stress associated with large scale migration and urbanisation. It would not be surprising if these processes were also associated with rising inequalities between rich and poor and rising environmental injustice as the poor bear the brunt of the pollution and the rich escape to more salubrious settings just as they did in 19th century Britain. The question for China but also for all of us is how do we create a high quality of life that does not propagate the disbenefits? The question is tough and more often dodged than addressed in an open and honest manner but China’s huge economic successes requires us all to re-evaluate our commitments to business as usual scenarios.

At the moment the USA, Australia and the European Union are all demonstrating a crude commitment to economic growth based on yet more infrastructure, more traffic, more congestion and more pollution. There is a touching belief that technology will rescue us but most know that technological gains are very easily cancelled out by growth in consumption. This has always been the case with traffic and continues to be the case with cars, trucks and aircraft. This deep commitment to growth and development is blind to social and environmental consequences but also means that we have very little to offer to China when it comes to alternative development paths. The stark implication of growing non-sustainability and growing global problems is that no one is able to offer leadership. Most of the world’s leaders are committed to the business as usual (BAU) model and have no authority to argue another course. They are long on the rhetoric of sustainable development but short on the practical implications of delivering lower levels of traffic and lower levels of flying. The growth of China as a world power with record rates of economic growth has exposed the moral and ethical bankruptcy of so-called developed countries. We can only observe with awe and fascination as Chinese levels of resource exploitation, pollution, greenhouse gases and loss of nature threaten regional, national and global sustainability. There are doing what “we” did only much better.

This special issue concentrates on transport in China which is a key indicator of the scale of the disbenefits associated with BAU. The articles display intuition, insight and creativity around the ways we can deal with transport problems and they contain much that will help to create a China that is healthier, cleaner and smarter than what is currently on offer.

Sadly the potential to influence China in the way that it might develop its cities and transport systems is severely diminished by the lack of intelligence, leadership and courage on the part of those developed nations that could have charted a clear course towards sustainable transport and sustainable mobility. The world is a more polluted and dangerous place because of this lack of courage.

John Whitelegg

Editor

· See page 36 for numbers on road traffic mortality – compare to WHO figures (of more than double)


Introduction

Joseph Szyliowicz and Zhou Wei

The remarkable economic growth that China has achieved in recent decades has been accompanied by the extensive development of its transportation system. Since the adoption of the economic reform and opening-up policy in 1978, the government, recognising that transportation plays an extremely important role in promoting socio-economic development and in improving the quality of life, has promoted the rapid growth of all the modes. Accordingly, by 2004 the rail network was the 3rd largest in the world, the road system the fourth largest, the expressways ranked second, and the airline passenger volume was the third largest. Furthermore, the long existing weaknesses of its transportation system have obviously been alleviated.

This expansion has not, however, taken place in an integrated manner or with adequate attention to its social, economic and environmental implications. At the same time, there has been a rapid and dramatic increase in automobile production and vehicle ownership. What was once a country where most people travelled by bicycle, a healthy and environmentally friendly mode, has become one with highly congested and polluted urban areas, regional imbalances, a high accident rate, a heavy and increasing dependency on oil imports, and serious distortions in social equity. In short, despite its tremendous achievements, China’s transportation system still confronts many serious problems that have to be resolved if is to contribute to national development in a sustainable manner. And, given China’s enormous population creating such a system has obvious implications for the entire world. The recent global rise in oil prices, for example, is partially due to China’s increased demand for oil.

Recognising the seriousness of this situation and the potential for change, the China Council for International Cooperation on Environment and Development (CCICED) decided, in November 2003, to establish the Sustainable Transportation Task Force. The CCICED, established in 1992 by the Chinese Government, following an international environment conference held in Beijing in October 1990, is a high level non-governmental advisory body with the purpose “to further strengthen cooperation and exchange between China and the international community in the field of environment and development.” For the past ten years, the Council has been successful in articulating high-level advice and assisting Chinese decision-makers to better understand the links between environmental protection and economic development. Due partly to the Council’s influence, the Chinese Government is increasingly effective in defining and implementing long-term integrated environmental strategies and policies. The Council’s recommendations are part of the input used by relevant ministries to develop policies and incorporate environmental considerations in their five-year planning process and the Council has contributed to a better public understanding and awareness of environmental issues in China. (www.cciced.org )

The Sustainable Transportation Task Force was charged with implementing a project entitled "strategy and policy for the development of sustainable transportation in China" with the goal of providing the government with a coherent and integrated strategy and policy framework for the future. It was a multinational, interdepartmental, and interdisciplinary research team, jointly led by Professor Zhou Wei, President of the China Academy of Transportation Sciences (CATS), and Professor Joseph S. Szyliowicz (Graduate School of International Studies, University of Denver (U.S.A.), founder of the University’s Intermodal Transportation Institute.

Established in 1960, the China Academy of Transportation Sciences (CATS) is an innovative research institute subordinate to the Ministry of Communications. Its staff, consisting of over 350 professional technicians, more than 120 of whom are senior professionals, has conducted a wide range of studies ranging from strategy and policy for integrated transportation development to logistics and data processing. For this project, CATS also involved researchers from the Ministry of Communication, the National Development and Reform Commission, the Ministry of Construction, the Ministry of Railway, the Academy of Sciences, Tsinghua University, and Tongji University. The international experts were or had been affiliated with such institutions as the World Bank, the European Union, U.S. Department of Transportation, U.S. Department of Energy, the America Energy Foundation, the Italian Department of Environment, and the World Resources Institute.

After its establishment, the Task Force established four sub groups (strategy and administration, urban transportation, rural roads, environment and energy) which carried out such research projects as the following: (1) the development and current status of China's transportation system (infrastructure, equipment and capacity); (2) the administration, management and planning of transportation (coordination, capacity, and efficiency); (3) transportation-related energy and environmental issues (pollution and land take, etc); (4) transportation-related socio-economic issues (road traffic accidents, health and social equity); (4) rural transportation (adequacy and financing); (5) urban transportation (land use, growth patterns, public transit, etc); and (6) the role of transportation-related fiscal and monetary policies in China (congestion charges, fuel taxes, etc).

Based on this research, the Task Force developed and presented two specific reports containing proposals that are consonant with China's condition and needs to the Chinese government. These were: "A Strategy and Policy Framework for the Development of a Sustainable Transportation System" and "Policy Recommendations on Establishing and Maintaining a Sustainable Transportation System". The research projects and these two reports have already attracted great attention from China’s central and local governments. The articles that follow draw upon these projects and reports and are designed to provide transportation professionals and colleagues throughout the world with insights into the work of the Task Force and a better understanding of China’s current transportation system and the kinds of reforms that are required in order to make it into a truly sustainable s

03 November 2006

Eric Britton - private message to Roland Ries

Eric Britton - private message to Roland Ries